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Fire Department
IOWA
CITY
COMMUNITY RISK AND EMERGENCY SERVICE ANALYSIS
STANDARD OF COVER
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City of Iowa City, Iowa
City Council
Mathew J. Hayek, Mayor
Connie Champion Susan Mims
Terry Dickens Michelle L. Payne
Rick Dobyns Jim Throgmorton
City Manager: Tom Markus
Assistant to the City Manager: Geoff Fruin
Fire Chief: Andrew Rocca
Accreditation Manager: Roger Jensen
Iowa City Fire Department
Community Risk and Emergency Services Analysis and Standard of Cover
An overview of the policies and procedures that establish distribution and concentration of fixed
and mobile resources of the Iowa City Fire Department, examining the department’s ability to
respond to and mitigate emergency incidents created by natural or man-made disasters, and a
comprehensive analysis of Iowa City Fire Department services.
Second Edition May 1, 2013
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EXECUTIVE SUMMARY
The Iowa City Fire Department (ICFD) was one of the first fire departments established in Iowa.
The roots of the department go back to 1842, three years after the founding of Iowa City and four
years before Iowa's statehood. The ICFD provides emergency and non-emergency services
including fire suppression, emergency medical care via basic and advanced life support services
(EMS), technical rescue (rescue), and hazardous materials (hazmat) response. Additionally, the
administrative staff is dedicated to ensuring the highest quality of service to the community,
continuously providing programs such as fire prevention and inspections, safety education,
emergency preparedness, emergency management, and building codes. The ICFD is consistently
working to achieve and/or maintain the highest level of professionalism and efficiency on behalf
of those it serves. The department is involved in the process of reaccreditation to ensure
continuous improvement for the future.
While demonstration is apparent via international accreditation, the department is committed to
continuous improvement through education and training. The ICFD regional training center
articulates with the Iowa Fire Service Training Bureau, Kirkwood Community College, and the
Johnson County Mutual Aid Association. Community involvement is also a top priority as the
ICFD participates in projects such as fire safety education, fire station tours, juvenile fire setters
intervention, a mobile fire safety house, a mobile fire sprinkler trailer, ride-along program, the
Iowa City/Coralville Safety Village, and is a co-leader with Mercy Hospital of the Johnson
County SAFE KIDS Coalition.
COMMUNITY RISK
AND
EMERGENCY SERVICES
ANALYSIS
STANDARD OF COVER
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Background
In an effort to work toward self-improvement, the ICFD contracted with the Center for Public
Safety Excellence (CPSE) to facilitate a method to document the department’s path into the
future - this resulted in the development and implementation of a ― community-driven strategic
plan.‖ The strategic plan was written in accordance with the guidelines set forth in the
Commission on Fire Accreditation International Fire & Emergency Service Self-Assessment
Manual 8th Edition and is intended to guide the organization within established parameters by
the authority having jurisdiction.
The ICFD conducts Community Risk and Emergency Services Analysis (CRESA) to achieve the
maximum effectiveness against all types of risk. The Standard of Cover (SOC) document
illustrates all hazards deployment strategy and links perspective demand for resources to risk
types and historical need within the community.
The ICFD’s performance goals and objectives outlined within the community-driven strategic
plan were crafted with consideration for the stakeholder’s input. Community values and
expectations played a key role in determining the department’s deployment objectives. As a
result of citizen and staff input, expectations were developed for each service type and risk
classification.
This document is a complete comprehensive assessment of community risk, examining risk
levels by service delivery type and geographic planning zone. A thorough discussion of risk
organized by service delivery type (Fire, EMS, Rescue, and Hazmat) was presented and carefully
analyzed.
Standard of Cover Process
Development of the department’s systematic deployment strategy is a combination of subjective
risk analysis and applied objective data. This document begins with a complete review of
current deployment. It provides a description of the community, a summary of the services
provided with the existing deployment, and a review of community expectations - this is
followed by a detailed community risk assessment in Section D.
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The SOC is comprehensive in that it performs a complete assessment of community risk,
examining risk levels by service delivery type and Risk Management Zone (RMZ). A thorough
discussion of risk organized by service delivery type was presented and carefully analyzed.
Additionally, for the purposes of risk and emergency response analysis and planning, the
department dissected the community by tracts known as Risk Management Zones (RMZs).
Risk levels were classified through the use of a probability and consequence methodology.
Historical response frequency data was used, along with the identification of community risk
factors such as target hazards, at-risk populations, property values, and economic and historic
loss considerations. Population densities were analyzed by RMZ and combined with local
considerations to predict service demand and form the basis for important risk level conclusions.
Risk level classifications were then determined for each service delivery by considering the
probable frequency of each specific incident type and their potential for loss. A critical tasking
analysis was then completed which identified the number of staff necessary to mitigate the
incident within a prescribed timeframe.
The next step in the process was to use historical response time data to measure current system
performance. Performance objectives were then outlined in Section F, which specified that total
response time measures be viewed in the framework of alarm handling, and turnout and travel
times. Baseline and benchmark performance measures for distribution (first arriving unit) and
concentration of resources were set forth by service delivery type and population density.
An SOC compliance methodology was developed in Section G to ensure the timely review of
actual system performance, the baseline and benchmark objectives themselves, and any changes
in community risk, service demand, planning zones, or operations that impact service level
objectives. The overall compliance strategy and action plans were designed to meet and
maintain current service level objectives regarding the deployment of department resources.
Finally, overall conclusions and recommendations were made for consideration by the Fire Chief
and other policy makers.
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SOC Conclusions and Recommendations Throughout the continuous improvement process, the ICFD has rationally and systematically
evaluated the community and the department using industry best practices and standards with the
sincere ambition of providing the highest quality of fire and emergency service to the
community. The entire process has been designed around risk, risk mitigation, and outcome,
while the final determination of success is measured by the achievement of the desired outcomes.
After assessment, areas in which the current levels of service delivery meet or exceed the
adopted performance measures were identified. However, several opportunities for improvement
were also discovered.
The department concluded that information, especially in regard to emergency incidents, could
be better captured and further refined. Another finding suggests the need for the additional study
of deployment in the area of resource allocation and placement.
The following recommendations are made as part of the continuous improvement effort for the
promotion of excellence within the department and to ensure a safer community for those who
visit, live, or work in Iowa City.
1: Incident information
The department should augment the existing process to ensure that the documentation of incident
information better captures the exact location of an incident in longitude and latitude and the
actions taken for each emergency response. Knowing exact locations, especially along
roadways, will help the department come up with effective risk mitigation measures to incidents.
2: Resource allocation and placement
The department should further study the distribution and concentration of current and future
human and physical resources regarding emergency services deployment, emergency workload,
population density, and community risk to ensure that performance objectives and measures are
met. The four-minute travel time map identified several weak areas with regard to the
department’s static distribution network. Many of the areas are not fully developed in terms of
road network or the number of structures present. Consistently, these areas also have low
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population densities and ―low‖ community risk level classifications. However, significant
portions fall into high risk RMZs, especially RMZ 4, and RMZ 23, which has 72 university
buildings. These findings call for reevaluation of the static distribution and/or additions of new
stations to fill gaps, as this would significantly impact response times.
3: Emergency response times
The ICFD is planning to add two more fire stations to assure the highest service level in all
protected areas of the city. Consideration should be given to improve resource (station)
concentration (location), especially in District 4 and District 2, where the department faces its
longest travel times. Consideration also must be given to the future growth of the city (refer to
the growth boundary map below) and the correlating impact upon population density.
The outcome of 2012 data analysis highlighted an issue with response times to RMZs 5 and 13.
The ICFD has made all efforts to improve performance in turnout times by continuously tracking
and reporting on units’ performance. Alarm handling time in general warrants improvement as
the department looks to improve total response time to an emergency event by minimizing: 1)
the time it takes to process a call for service; 2) the time it takes for firefighters to don personal
protective equipment and board the apparatus; and 3) the time it takes to travel to the location of
the emergency. Part of the scheduled improvement projects is a diamond cut grinding of
Emerald Street in District 2. The completion of this project should significantly improve Station
2 response times. Further detailed study for District 2 performance would help the department
identify and address any other issues that might cause longer travel times.
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Contents
EXECUTIVE SUMMARY ........................................................................................................... 2
Background ............................................................................................................................................... 3
Standard of Cover Process ........................................................................................................................ 3
SOC Conclusions and Recommendations ................................................................................................. 5
Table of Figures ................................................................................................................................... 12
COMMUNITY RISK AND EMERGENCY SERVICES ANALYSIS and STANDARD OF COVER ........... 16
A. COMMUNITY PICTURE ................................................................................................. 17
Legal Basis ........................................................................................................................................... 17
Governance ......................................................................................................................................... 18
Financial Basis ..................................................................................................................................... 20
History of the Department ...................................................................................................................... 23
Service Milestones, 2008-2012 ............................................................................................................... 29
2009 .................................................................................................................................................... 30
2010 .................................................................................................................................................... 31
2011 .................................................................................................................................................... 32
2012 .................................................................................................................................................... 38
Community Description ......................................................................................................................... 42
Geography ........................................................................................................................................... 42
Topography ......................................................................................................................................... 42
Trails .................................................................................................................................................... 43
Parks .................................................................................................................................................... 45
Streams and Other Bodies of Water ................................................................................................... 46
Climate ................................................................................................................................................ 47
Population ........................................................................................................................................... 52
Schools ................................................................................................................................................ 58
The University of Iowa ........................................................................................................................ 60
Demographic Features ........................................................................................................................ 62
Languages............................................................................................................................................ 63
At Risk Groups ..................................................................................................................................... 64
Educational Attainment ...................................................................................................................... 65
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Industries ............................................................................................................................................ 65
Transportation .................................................................................................................................... 66
Iowa City Municipal Airport ................................................................................................................ 66
Waterways .......................................................................................................................................... 68
Highways ............................................................................................................................................. 68
Rail ....................................................................................................................................................... 70
Roads ................................................................................................................................................... 71
Transit Service ..................................................................................................................................... 76
Land Use .............................................................................................................................................. 77
General Housing Information ............................................................................................................. 81
B. DEPARTMENT SERVICES .............................................................................................. 85
Service Delivery Programs ...................................................................................................................... 87
Fire Suppression .................................................................................................................................. 87
Emergency Medical Services ............................................................................................................... 88
Rescue ................................................................................................................................................. 89
Hazmat ................................................................................................................................................ 91
Service Deployment ................................................................................................................................ 95
Points of Service Delivery and Resources ........................................................................................... 95
Emergency Operations ........................................................................................................................ 99
Existing Prevention and Occupancy Inspection Programs ................................................................ 101
Code Enforcement ............................................................................................................................ 102
Public Education program ................................................................................................................. 102
Training and Equipment .................................................................................................................... 104
Fire Stations ...................................................................................................................................... 106
C. Community Trust ....................................................................................................... 113
Community Expectations ..................................................................................................................... 114
Service Delivery Program Transitions ............................................................................................... 114
Community Service Expectations ...................................................................................................... 114
Performance Expectation Goals............................................................................................................ 116
Mission .............................................................................................................................................. 116
Performance Goals ............................................................................................................................ 116
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Community Service Priorities ............................................................................................................ 117
ISO Rating .......................................................................................................................................... 118
D. COMMUNITY RISK ASSESSMENT................................................................................ 119
Methodology Used in the Classification of Community Risk Levels ................................................. 120
Risk Assessment Defined .................................................................................................................. 121
Community Service Demands ............................................................................................................... 123
Incident History ................................................................................................................................. 123
Incidents by Type .............................................................................................................................. 124
Incident Location ............................................................................................................................... 127
Incident Location Conclusion ............................................................................................................ 137
Incident Frequency ........................................................................................................................... 137
First Due Conclusion ......................................................................................................................... 137
Service Delivery Areas ....................................................................................................................... 138
Station Response Areas .................................................................................................................... 138
Risk Identification.............................................................................................................................. 140
Critical Task Analysis ......................................................................................................................... 140
Fire Risk ............................................................................................................................................. 140
Structure Fires ................................................................................................................................... 141
Attributes of a Building in Maximum Risk Category: ........................................................................ 151
Special Housing ................................................................................................................................. 162
Historical Buildings ............................................................................................................................ 166
Fire Risk Level Conclusions ................................................................................................................ 167
Fire Risk Level Classifications ............................................................................................................ 170
Fire Critical Task Analysis .................................................................................................................. 171
Other Non-Fire Risks...................................................................................................................... 178
Rescue Risks ...................................................................................................................................... 179
Rescue Risk Level Conclusions .......................................................................................................... 185
Hazmat Risks ..................................................................................................................................... 189
All Hazard Disaster Response Assistance ................................................................................ 193
Disaster Risks .................................................................................................................................... 194
Non-Fire Risks ................................................................................................................................... 194
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Drought ............................................................................................................................................. 205
Snow and Ice ..................................................................................................................................... 207
Severe Weather Plan ........................................................................................................................ 207
The Iowa City Continuity of Operations Plan .................................................................................... 209
Natural Hazard Risk Conclusion ........................................................................................................ 209
Risk Management Zones ................................................................................................................... 209
Risk Evaluation .................................................................................................................................. 210
E. HISTORICAL PERSPECTIVE AND SUMMARY OF SYSTEM PERFORMANCE .......................... 216
Relationship between Fire Behavior and Response Times ............................................................... 217
Relationship between Cardiac Arrest and Response Times ............................................................. 220
Community Response History ........................................................................................................... 221
Cascade of Events ............................................................................................................................. 221
Distribution Benchmark Statement .................................................................................................. 224
Concentration Benchmark Statement ................................................................................................ 225
Concentration Study of Resources .................................................................................................... 226
Community Service Level Benchmark Objectives ............................................................................. 227
Comparability Study .......................................................................................................................... 232
Baseline Performance ....................................................................................................................... 232
Methodology of Response Data Gathering and Analysis.................................................................. 233
Baseline System Performance .......................................................................................................... 234
Concentration Study of Resources .................................................................................................... 246
Reliability Study ................................................................................................................................. 249
Location and Distribution Reliability ................................................................................................. 251
Availability and Resource Reliability ................................................................................................. 251
Total Response Time and Performance Reliability ........................................................................... 252
F. PERFORMANCE OBJECTIVES AND MEASURES ............................................................. 255
Fire Suppression Benchmark Performance Objectives and Measures ............................................. 256
Fire Suppression Baseline Performance Objectives and Measures .................................................. 257
EMS Benchmark Performance Objectives and Measures ................................................................. 258
EMS Baseline Performance Objectives and Measures ..................................................................... 258
Technical Rescue Benchmark Performance Objectives and Measures ............................................ 259
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Technical Rescue Baseline Performance Objectives and Measures ................................................. 260
Hazardous Materials Benchmark Performance Objectives and Measures ...................................... 260
G. COMPLIANCE METHODOLOGY ...................................................................................... 263
Continuous Improvement ..................................................................................................................... 263
H. OVERALL EVALUATION AND CONCLUSION RECOMMENDATIONS ............................... 268
Conclusions ........................................................................................................................................... 268
Recommendations ............................................................................................................................ 270
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Table of Figures
Figure 1: Iowa City Council Districts ........................................................................................................... 19
Figure 2: General Fund Revenue ................................................................................................................ 21
Figure 3: Firehouse Analytics ..................................................................................................................... 39
Figure 4: ICFD within Johnson County and State of Iowa .......................................................................... 42
Figure 5: Iowa City Growth Boundary ........................................................................................................ 43
Figure 6: Iowa City Parks ........................................................................................................................... 45
Figure 7: Iowa City Water Ways ................................................................................................................. 46
Figure 8: Days Temperature was Equal to or Greater than 90 Degrees Fahrenheit ................................. 47
Figure 9: Temperature Records ................................................................................................................. 48
Figure 10: Weather Averages ..................................................................................................................... 49
Figure 11: Normal Precipitation ................................................................................................................. 51
Figure 12: Population Growth Trend ......................................................................................................... 52
Figure 13: 2010 Population Densities by Census Blocks ............................................................................ 53
Figure 14: Inflow/Outflow of Workers ....................................................................................................... 54
Figure 15: Population Trend in Iowa City and Johnson County ................................................................. 54
Figure 16: Population by Age Cohort ......................................................................................................... 55
Figure 17: Percentage of Population in Selected Age Groups ................................................................... 55
Figure 18: Population Linear Projection..................................................................................................... 56
Figure 19: RMZ Classification ..................................................................................................................... 57
Figure 20: Population Density by RMZ ....................................................................................................... 58
Figure 21: Iowa City Schools ...................................................................................................................... 59
Figure 22: University of Iowa Campus ....................................................................................................... 60
Figure 23: University of Iowa Campus Zones ............................................................................................. 61
Figure 24: Racial Mix .................................................................................................................................. 62
Figure 25: Languages Other than English Spoken at Home ..................................................................... 63
Figure 26: List of People in Group Quarters ............................................................................................... 64
Figure 27: Highways Serving Iowa City ...................................................................................................... 69
Figure 28: Vehicle Incidents 2008-2012 ..................................................................................................... 70
Figure 29: Primary Roadways ..................................................................................................................... 72
Figure 30: Transportation Capacity ............................................................................................................ 73
Figure 31: Transportation Level of Service Definition ............................................................................... 74
Figure 32: 2012 Peak Hour Level of Service ............................................................................................... 75
Figure 33: Land Use Map ........................................................................................................................... 78
Figure 34: Total Housing Units ................................................................................................................... 79
Figure 35: Residential Structures Distribution ........................................................................................... 79
Figure 36: RMZ Structures by Class ........................................................................................................... 80
Figure 37: Change in Household Composition ........................................................................................... 81
Figure 38: Breakdown of Hydrants ............................................................................................................ 84
Figure 39: 2012 Fire Flow ........................................................................................................................... 84
Figure 40: Johnson County Fire Station Locations ..................................................................................... 95
Figure 41: Points of Service Delivery .......................................................................................................... 96
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Figure 42: ICFD Resources .......................................................................................................................... 97
Figure 43: Emergency Response Staffing ................................................................................................... 98
Figure 44: ICFD Protected Area .................................................................................................................. 99
Figure 45: Incident and Firefighter per Population .................................................................................... 99
Figure 46: Fire Incidents 2008-2012 ........................................................................................................ 100
Figure 47: Response by Type 2008-2012 ................................................................................................. 101
Figure 48: Station 1 Equipment ............................................................................................................... 107
Figure 49: Station 2 Equipment ............................................................................................................... 108
Figure 50: Station 3 Equipment ............................................................................................................... 108
Figure 51: Training Center Inventory ....................................................................................................... 109
Figure 52: Station 4 Inventory .................................................................................................................. 110
Figure 53: ICFD Programs ......................................................................................................................... 114
Figure 54: Verbatim Customer Expectations in Order ............................................................................. 115
Figure 55: Customer Service Priorities ..................................................................................................... 118
Figure 56: Probability and Consequence Matrix ...................................................................................... 121
Figure 57: Incident Count Summary 2006-2012 ...................................................................................... 123
Figure 58: 2012 Incidents by Type ........................................................................................................... 124
Figure 59: Incident Type Summary 2008-2012 ........................................................................................ 125
Figure 60: Total Fire Incidents .................................................................................................................. 125
Figure 61: Fire Incidents by Hour ............................................................................................................. 126
Figure 62: EMS/Rescue by Hour ............................................................................................................... 126
Figure 63: Incident by Station .................................................................................................................. 127
Figure 64: 2012 Total Incidents by RMZ................................................................................................... 128
Figure 65: Density of Calls, 2009-2011 ..................................................................................................... 129
Figure 66: 2010 Incidents' Density and Businesses Locations ................................................................. 130
Figure 67: 2010 Population Densities by RMZ ......................................................................................... 131
Figure 68: Incidents by RMZ ..................................................................................................................... 132
Figure 69: Incidents by RMZ 2008-2012 .................................................................................................. 133
Figure 70: 2012 Incident Count by Type .................................................................................................. 134
Figure 71: Fire Incidents by RMZ .............................................................................................................. 134
Figure 72: EMS/Rescue by RMZ ............................................................................................................... 135
Figure 73: HAZMAT by RMZ ..................................................................................................................... 135
Figure 74: Other Incidents by RMZ .......................................................................................................... 136
Figure 75: 2011 Map of Incidents ............................................................................................................ 136
Figure 76: Overlapping Incidents ............................................................................................................. 137
Figure 77: Iowa City Fire District .............................................................................................................. 138
Figure 78: Station Response Areas within 4 Minutes Travel Time .......................................................... 139
Figure 79: Fire Response 2008-2012 ........................................................................................................ 140
Figure 80: Number of Structures by RMZ ................................................................................................ 142
Figure 81: Structures' Density by RMZ ..................................................................................................... 143
Figure 82: Population Density per Structure ........................................................................................... 144
Figure 83: Property Loss Due to Fire 2008-2012 ..................................................................................... 146
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Figure 84: Property Average Assessed Value Excluding Government and University ............................. 147
Figure 85: Occupancy Hazard Statistics ................................................................................................... 149
Figure 86: Total Occupancy Hazard Statistics .......................................................................................... 149
Figure 87: Total Structures by Type of Use and Risk Class ....................................................................... 149
Figure 88: Risk Category by Type of Structure ......................................................................................... 150
Figure 89: High Risk Buildings Map .......................................................................................................... 150
Figure 90: High Risk Buildings by RMZ ..................................................................................................... 151
Figure 91: Significant Risk Structures by RMZ .......................................................................................... 152
Figure 92: Total Multi-family Structures by RMZ ..................................................................................... 154
Figure 93: Average OVAP Score by RMZ .................................................................................................. 154
Figure 94: Average OVAP Score Map ....................................................................................................... 155
Figure 95: RMZs Classification as Identified by RHAVE Program ............................................................. 156
Figure 96: Low to Moderate Income and Minority Concentration by RMZ ............................................ 160
Figure 97: 2010 Senior Populations ......................................................................................................... 161
Figure 98: Population Age 85 or Older by RMZ ....................................................................................... 162
Figure 99: Population Age 5 or Under by RMZ ........................................................................................ 164
Figure 100: Incidents Density in Relation to Special Housing, 2010 ........................................................ 165
Figure 101: Critical Tasks and ERF by Risk Type ....................................................................................... 171
Figure 102: 2011 Fire and EMS Incidents ................................................................................................. 173
Figure 103: EMS Responses ..................................................................................................................... 174
Figure 104: 2011 EMS Incidents as a Percent of Total ............................................................................. 174
Figure 105: EMS Critical Task Analysis ..................................................................................................... 177
Figure 106: Non-fire Emergency Responses ............................................................................................ 178
Figure 107: Non-fire Response by Type ................................................................................................... 179
Figure 108: Rescue ERF ............................................................................................................................ 188
Figure 109: HAZMAT ERF ......................................................................................................................... 192
Figure 110: Comparison between the Western US Seismic Fault and the New Madrid Seismic Fault ... 195
Figure 111: Path and Damage Amounts, Iowa City July 28, 2006 ............................................................ 197
Figure 112: Water Level and the Corresponding Flood Impact ............................................................... 199
Figure 113: Residential Properties, Historic District, and FEMA 100-&ear Floodplain ............................ 200
Figure 114: 2008 Flood and FEMA Floodplain ......................................................................................... 201
Figure 115: Iowa City Zoning within FEMA 100-Year Floodplain and 2008 Flood Boundary .................. 203
Figure 116: Zones Flooded in 2008 .......................................................................................................... 204
Figure 117: Drought Monitor, July 2012 .................................................................................................. 205
Figure 118: Drought Intensity and Consequences ................................................................................... 206
Figure 119: Total OVAP Value by RMZ ..................................................................................................... 211
Figure 120: Risk Level Classification by RMZ ............................................................................................ 214
Figure 121: RMZs Risk Level ..................................................................................................................... 215
Figure 122: Time vs. Products of Combustion ......................................................................................... 219
Figure 123: Time vs. Defibrillation Success .............................................................................................. 220
Figure 124: Cascade of Events for Emergency Services ........................................................................... 223
Figure 125: Fire Baseline Performance .................................................................................................... 235
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Figure 126: Emergency Medical Service Baseline Performance .............................................................. 237
Figure 127: Technical Rescue Baseline Performance ............................................................................... 239
Figure 128: Hazardous Materials Baseline Performance ......................................................................... 242
Figure 129: Four Minute Response Areas ................................................................................................ 243
Figure 130: 2008 Response Time ............................................................................................................. 245
Figure 131: Response Time 2009-2011 .................................................................................................... 246
Figure 132: 2012 Incident Responses by Station ..................................................................................... 247
Figure 133: Travel Time by Station .......................................................................................................... 248
Figure 134: 2008-2012 All Code 3 Incidents Call Processing Time in Seconds ........................................ 249
Figure 135: 2008-2012 All Code 3 Incidents Turnout Time in Seconds ................................................... 250
Figure 136: 2008-2012 All Code 3 Incidents Travel Time in Minutes ..................................................... 250
Figure 137: First Arriving Unit Total Response Time Reliability ............................................................... 253
Figure 138: Benchmark Fire Suppression by Population Density ............................................................ 256
Figure 139: Baseline Performance Times by Population Density ............................................................ 257
Figure 140: Benchmark EMS by Population Density ................................................................................ 258
Figure 141: EMS Baseline by Population Density..................................................................................... 258
Figure 142: Benchmark Technical Rescue by Population Density ........................................................... 259
Figure 143: Baseline Technical Rescue by Population Density ................................................................ 260
Figure 144: Benchmark Hazmat by Population Density ........................................................................... 260
Figure 145: Baseline HAZMAT by Population Density ............................................................................. 261
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COMMUNITY RISK AND EMERGENCY SERVICES ANALYSIS and STANDARD
OF COVER
The analysis of the community risk and emergency services is divided into five parts:
Community Picture; Department Services; Community Trust; Community Risk Assessment; and
Historical Perspective and Summary of System Performance. Following the five parts of the
analysis, the department established an organizational Standard of Cover (SOC), which includes
Performance Objectives and Measures, a Compliance Methodology, and Overall Evaluation.
The following chart illustrates the relationship of the Community Risk and Emergency Service
Analysis and SOC with evaluation.
Community Risk and Emergency Services Analysis
and Standard of Cover
A. Community Picture
B. Department Services
C. Community Trust
D. Community Risk Assessment
E. Historical Perspective and Summary of System Performance
F. Performance Objectives and Measures
G. Compliance Methodology
H. Overall Evaluation
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A. COMMUNITY PICTURE
The first part of the Community Risk and Emergency Services Analysis is the Community
Picture. This part is an introduction to Iowa City that will help orient any reader to the
community’s features. The Community Picture is sub-divided into four parts to better help
depict the community: Legal Basis, Department History, Department Milestones, and
Community Description.
Legal Basis
The Code of Iowa City grants the City of Iowa City the authority to establish, house, equip, staff,
uniform, and maintain a fire department. The ICFD was established by city ordinance on
February 1, 1874. According to the proceedings of the Fourth Legislative Assembly of the
territory of Iowa, Council File 109, a bill authorizing the Iowa City Fire Engine Company was
approved in February 1842, largely for the protection of what was then the new state capitol
building, known now as ― Old Capitol.‖ The company was finally formed on January 31, 1844.
The Iowa City Fire Engine Company apparently went out of existence sometime in the late
1840s or early 1850s. Then in 1861, in response to a fire that burned most of the buildings on
Dubuque Street between Iowa Avenue and Washington Street, the City Council passed an
ordinance to ―establish fire companies in Iowa City.‖
A. Community Picture
Legal Basis Department
History
Department
Milestones
Community
Description
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The Alert Hose House, long time home of Snow Ball and High Ball, famous Iowa City fire horses, after their retirement. This picture was taken in the late 1920s, about the time the Alert Hose Company disbanded.
Governance
The governing body having jurisdiction over the ICFD is an elected City Council/City Manager
form of government under a home rule charter. By ordinance, the city is divided into three
council districts of substantially equal population. Figure 1 below shows a map of the three
districts. The Iowa City Council consists of seven council members serving staggered four-year
terms. Four of them represent the city "at-large" and are nominated by all voters and elected by
all voters. Although the other three are "district" council members (Districts A, B, and C shown
in the map below), nominated solely by voters within their districts and any primary is held only
within the district, they are elected by voters city-wide. All powers of the city are vested in the
council, except as otherwise provided by state law or the charter. As the policy makers, the City
Council passes resolutions and ordinances, approves the budget, appoints citizens to advisory
boards, and hires the City Manager.
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Figure 1 Iowa City Council Districts
The City Manager, as the chief administrative officer, is responsible for administering the affairs
of the city, under the direction and supervision of the council. Much like the executive branch of
the federal government, the City Manager implements policy decisions of the City Council and
enforces city ordinances. In addition, the City Manager appoints and directly supervises the
directors of the City's operating departments; i.e. appoints the chief of the police department and
the Fire Chief with the approval of the City Council; supervises administration of the City's
personnel system, and further supervises the official conduct of City employees, including their
employment, training, compensation, reclassification, and discipline.
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The Fire Chief has the responsibility to keep the lines of communication open between the
governing body and the department. The Fire Chief is also responsible for reporting to the City
Manager on a weekly basis at a scheduled staff meeting issues that may affect the dynamics of
how the city operates. The City Council gives the City Manager a great deal of latitude to run
the city and the City Manager encourages the Fire Chief to come up with the best possible
programs to benefit the city. With recommendations from the Fire Chief, the City Manager
makes a determination as to which programs may need to be brought before the elected members
of the City Council, i.e. changes in the model codes, amendments to the same, fees for service,
etc.
The City strives to be a high-functioning, customer service oriented organization that actively
supports and engages stakeholders through clear, open, and innovative communication methods.
On January 4, 2012, the City Council passed a resolution establishing the City’s strategic
planning priorities. The resolution identified public communications and community outreach as
one of the top priorities. Recently, the City Manager has called for a comprehensive
organizational assessment to be conducted, including an evaluation of public communications
and community outreach. This directive will be incorporated into an action plan and presented to
the City Council for review every four months for approval.
Financial Basis
Generally, the department is funded by the City’s general fund. The City’s General Fund is
supported by eight funding source areas. Property tax is the largest portion of the source areas,
followed by other taxes and charges for services. Property tax revenue of $36.6 million is the
primary funding source for General Fund operations, providing an estimated 64 percent of total
revenue in FY2013. The ICFD’s annual operating and capital budget appropriated for the year
ending June 30, 2012, was $9,206,705.
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Figure 2 General Fund Revenue
The City of Iowa City’s Finance Department provides a financial planning manual to each
division to assist in the development of the annual budget. Each fiscal year, the department
develops a multi-year capital outlay budget, which is reviewed and updated annually. These
expenditures must be approved by the City Council. The annual budget is provided to the
department as approved by the City Council. The overall annual budget and short-range
financial plan requests clearly reflect the department’s plans and priorities.
The Fire Chief is intensely involved in the preparation of the City’s annual budget. The
Financial Plan includes the one-year annual budget, required by Iowa Code, and provides two
projection years as a planning tool. The three-year plan also permits a more comprehensive
review of the City’s financial condition, allowing analysis of current and future needs and
requirements. During preparation of the plan, careful review is made of property tax levy rates,
utility and user fee requirements, ending cash balances by fund, debt service obligations, bond
financing needs, capital outlay for equipment purchases, and major capital improvement projects.
Property Taxes
64%
Other City Taxes
18%
Licenses & Permits
2%
Use Of Money &
Property
0%
Intergovernmental
5% Charges For Services
7% Miscellaneous
3%
Other Financing
Sources
1%
FY 2013 Budget - General Fund
22
The City Council sets the budget priorities and adopts the financial plan. The ICFD is given the
task of developing a budget that addresses the needs of the department. The department uses the
Three-Year Financial Plan set forth by the City of Iowa City governing body. All budgetary
decisions are approved by the City Council.
23
History of the Department
Iowa City was created by an act of Legislative Assembly of the Iowa Territory on January 21,
1839, fulfilling the desire of Governor Robert Lucas to move the capitol out of Burlington and
closer to the center of the territory. While it was selected as the territorial capital in 1839, it did
not officially become the capital city until 1841, after construction on the capitol building had
begun. The capitol building was completed in 1842, and the last four territorial legislatures and
the first six Iowa General Assemblies met there until 1857, when the state capital was moved to
Des Moines.
A bird's-eye view map of Iowa City circa, 1868.
Fire protection was an essential component of public safety when Iowa was on the frontier, just
as it is now. Then, the position of Firefighter was filled by a dedicated volunteer who was
willing to sacrifice his time, energy, health and even his life to help protect the community. At
some point in each town and city, these volunteer firefighters stopped simply congregating at the
scene of a fire and formed themselves into fire companies and fire departments.
Through an 87-year "volunteer era" of the fire department in Iowa City, there were 12 separate
fire companies. Together, these fire companies had well over 400 members. Some of the
companies lasted only a few years while others remained active for decades. There were as
24
many as six different fire companies in Iowa City at one time. Eventually, they were grouped
under the umbrella name of the Iowa City Fire Department, while maintaining their individual
identities and functions. These volunteer fire companies performed a much-needed public
service, which Iowa City could not have otherwise afforded at that time.
As a result of citizens’ petition, the City Council ordered the marshal to "procure, upon the best
possible terms, three-story, two-story, and two 14-foot ladders, six poles with the necessary
hooks, chains, and ropes, together with a carriage suitable for the conveyance of the same, and to
provide a suitable central place for the keeping of the same." As a result, Iowa City Fire
Company number 1 was formed on October 26, 1855, and was equipped with the items that the
marshal bought in 1854. They may also have had a hand engine, because on August 11, 1856,
the Council recommended the expenditure of $300 for the purchase of a fire engine.
In 1861, in response to a fire that burned most of the buildings on Dubuque Street between Iowa
Avenue and Washington Street, the City Council passed an ordinance to establish fire companies
in Iowa City. The council also authorized the purchase of equipment for the firefighters. It may
have been pulled to fires by horses hired for each alarm from the nearby, Foster and Thompson's
Livery Barn. Once on the fire scene, the pump was powered by hand by firefighters in order to
add pressure to water from mains.
25
Five firefighters taking possession of Snowball and Highball in 1912. Fire Chief Jim Clark is second from the left
In 1872, in response to a fire that destroyed the famous Clinton House Hotel, the City Council
agreed to purchase $500 worth of fire-fighting gear, including hook and ladder equipment and
buckets. This led to the founding of the entity named the Iowa City Fire Department. A new
volunteer company -the Rescue Hook and Ladder Company No.1- was formed on May 20, 1872,
to take charge of the new equipment. The Rescue Hook and Ladder Company No.1 was the only
fire company in the new department at that time. This new equipment brought about the
formation of a second fire company, the Protection Engine and Hose Company #1, on July 10,
1873. Later, the Protection Engine and Hose Company No. 1 procured a two-wheeled hose cart.
A two-wheeled hose cart was pulled to fires by firefighters. With the formation of two
independent fire companies, the ICFD was established by city ordinance.
The new ordinance provided for companies of fire wardens, horsemen, engine men, and ladder
men. These companies were autonomous and task specific, but unlike rival companies in other
cities, they were considered part of one fire department. They were under the supervision of a
Fire Chief and two assistant chiefs. All fire apparatus was under the care of the Fire Chief who
26
was required to make a quarterly report to the City Council on the condition of the Fire
Department. In 1881, Iowa City built a new city hall at the corner of Linn and Washington
streets. ICFD headquarters were moved to this building.
In 1883, a second fire station - the Alert Hose House - was built at 206 North Linn Street, just
north of Market Street. On March 8, 1884, the Alert Hose Company No. 2 was formed and
moved into the new house. They had a four-wheel hose cart and protected the north end of the
city.
In 1890, the Iowa State Legislature passed a law allowing second-class cities (those with a
population between 2,000 and 15,000) to levy a tax, "For the purpose of maintaining a fire
department." As a result, the City was able to purchase more and better equipment. An even
greater impact on the department was the aspect of the law that allowed cities to pay firefighters
for their time spent at fires.
Hose cart 1900
27
On July 14, 1929, the Alert Hose House on North Linn Street finally closed and a two-platoon
system was created. The six paid firefighters worked every other day. The inclusion of the Fire
Chief brought the total strength of the department to seven.
The ICFD started absorbing increases in staffing in 1968. The increases were due to the opening
of Station 2 – located at 301 Emerald Street, just off Melrose Avenue - on August 23, 1968.
More firefighters were hired to staff another firehouse, Station 3, which opened on February 12,
1972, and is located at 2001 Lower Muscatine Road. With the addition of the firefighters hired
to staff Station 3, the total strength of the department was brought to 51 firefighters.
The department currently operates from four fire stations and maintains a staff of 64 uniformed
personnel. The department’s minimum daily firefighter staffing is 16 firefighters and officers
(maximum 20) responding on three engine companies, one quint company, one truck company,
and one battalion chief command van. Minimum staffing on each apparatus is three personnel.
Station 1 is staffed with a minimum of seven personnel, of which two are officers. Stations 2, 3,
28
and 4 are staffed with a minimum of three personnel at each location, of which one is an officer
or acting officer.
Newly opened Fire Station 4 is located on the city’s northeast side at the intersection of North
Dodge Street and Scott Boulevard. The 13,300 square-foot station opened on Monday, October
3, 2011. Fire Station 4 is providing faster response times to the growing northeast side of Iowa
City.
Following a year of operation, compliance with a travel time goal of four minutes increased from
69.5 percent to 72.3 percent, city-wide. The additional satellite station yielded nine new
firefighters and is equipped with an engine, a rescue truck, and a reserve engine. The building
features drive-thru apparatus bays, a first for Iowa City. The building also includes a geothermal
HVAC system, generous use of ambient day lighting, water-efficient fixtures, and other features
that did achieve gold certification in the Leadership in Energy and Environmental Design
(LEED), a green building certification system.
29
Service Milestones, 2008-2012
2008
The Iowa City Fire Department (ICFD) was
unanimously awarded Accredited Agency Status by
the Commission on Fire Accreditation International
(CFAI) at the Center for Public Safety Excellence
Commission (CPSE) hearings in Denver, CO. The
ICFD was one of only 128 agencies worldwide to
obtain CFAI Accredited Agency Status.
The ICFD continued to be active in taking a leading role in the Johnson County Hazardous
Materials Response Team. Twelve ICFD personnel are part of the Hazmat Team. All
personnel are certified as hazmat technicians.
The department was severely tested
during the flood of 2008 with the
training center falling victim. At the
crest of the flood, water was
approximately 42 inches deep
throughout and around the building.
Approximately 800 hours of labor
was spent restoring the training
center. Rising waters threatened to
close all of the bridges linking the
east and west sides of the city. ICFD personnel were called to staff two additional fire
companies on the west side to ensure a safe and effective response to fires and other
emergencies anywhere in the city, independent of help from across the flood waters.
30
2009
Following months of demolition and
reconstruction, Station 2 personnel moved into the
City’s new fire station. Station 2, located at 301
Emerald Street, was awarded Gold Level
certification from LEED (Leadership in Energy
and
Environmental Design), which is an internationally
recognized green building certification system.
Station 2 is the first building the City of Iowa City
completed with LEED certification.
A groundbreaking ceremony for the construction of
Station 4 was held in October. Station 4 was partially
funded with $2.2 million in I-JOBS money
appropriated by the State of
Iowa. Station 4 will better
serve the northeast quadrant of Iowa City and will be
LEED certified. Station 4 is the first drive-thru fire
station for the ICFD.
Videoconferencing was implemented, which allows live videoconferencing to outlying stations,
as well as the Johnson County Emergency Management Agency. Videoconferencing allows fire
units to stay in their fire districts and minimizes travel between stations for communication,
greatly improving the ability to coordinate activities in times of natural or man-made disasters.
31
2010
The Fire Prevention Bureau conducted 1,959 fire and life-safety inspections in businesses,
schools, daycares, churches, and university buildings. The inspections allowed the bureau to
ensure adherence to local codes and national standards, as well as increase familiarity with
pertinent information, such as building construction and potential hazards associated with
occupancy.
The ICFD used funds received from FEMA’s Assistance to Firefighters Grant Program to
purchase laptop computers for use in completing electronic-based fire inspections and preplans.
This major change allowed the department to work toward a total paperless record management
system and significantly improved the manner in which inspection data is collected, tracked, and
retrieved.
The ICFD embarked on a community-
driven strategic planning process,
facilitated by the Center for Public
Safety Excellence (CPSE). The
strategic plan was the result of input
from 74 external stakeholders and
then developed by 32 internal
stakeholders. ICFD personnel were
tasked with critically examining paradigms, values, philosophies, beliefs, and desires,
challenging individuals to work in the best interest of the ― team.‖ The five-year plan contains
goals in the areas of training, communications, marketing, physical resources, human capital, and
service delivery.
32
The ICFD instituted a pass/fail fitness exam for
new hires, known as the Candidate Physical
Ability Test (CPAT). Applicants started by
taking a written exam. The top 69 scores
proceeded to the CPAT. An interview
committee then interviewed 60 applicants and
generated a list of 26 highly-qualified
firefighter candidates for certification by the
Civil Service Commission.
2011
New Station 4, located at 2008 N. Dubuque
Road, opened its doors at 0700 on October 3rd
and was paged out for a call for service shortly
thereafter. The station is located in a fast-
growing portion of the city where the initial
emergency unit travel time goal of four minutes
was previously unachievable. Station 4 not only
meets the needs of the northeastern part of the city by providing fire and emergency medical
services, but it also provides technical rescue proficiencies
throughout the fire district through enhanced training. The
facility is a single-story structure with 13,300 gross square
footage, including a mezzanine level, basement, and apparatus
bay. The total project construction cost was $3.2 million and
was funded by a $2.2 million I-JOBS grant, an inter-fund loan,
and general obligation bond proceeds. The ICFD’s only heavy
rescue apparatus – Rescue 4 – is housed at Station 4. Station 4
was designated as the specialty rescue station and coordinates
all Special Operations Rescue Team (SORT) activities. The
SORT keeps skill levels high with team training, in addition to regular company and shift
training on various rescue disciplines. Nine additional firefighters were hired to staff Station 4.
33
Public safety answering points, formerly operated by the city and the county, were consolidated
into the Joint Emergency Communications Center
(JECC). A state-of-the-art P25
compliant digital 800 MHz radio
system provides interoperable
communications for all fire, law
enforcement, and emergency
medical service providers in
Johnson County. This project was a prime example of local governments’ collaboration and
cooperation.
Fire and life-safety education provided over 500 presentations, accounting for over 740 hours of
contact. In addition to public education programs geared for children, public educators also
provided programs focusing on
general home safety, older adult
safety, public assembly safety, and
residence hall safety. The ICFD
continues to build partnerships
within the community, co-
sponsoring a mock residence hall
room burn, a smoke alarm
replacement program, and attending
numerous safety fairs.
34
Two new 2011 Pierce Impel pumpers with the Pierce Ultimate Configuration (PUC) were placed
in-service. Each unit is equipped with a 1500 gallon per minute pump. The units each carry 750
gallons of water and the usual complement of hose and ground ladders, along with some light
rescue equipment. The units are equipped with state-of-the-art safety systems, such as seat belt
warnings with frontal and side airbags. One of the pumpers was assigned to Station 3 and the
other was assigned to Station 4. A
new 2011 Pierce Velocity pumper was
also placed in-service. This apparatus
is referred to as a Quint, due to its 75
foot aerial ladder, giving it extra
capabilities. The Quint is equipped
with safety systems and was assigned
to Station 2. The apparatus were built
by Pierce Manufacturing, located in
Appleton, WI. The estimated total cost of these three apparatus was $1.9 million and they were
paid for with general obligation bonds.
The ICFD took delivery on a new Rescue One 1660 Connector model boat. The boat is
equipped with a light bar, emergency lighting, a vinyl top, and a cover. The boat is a larger
version of the Jon boat it replaced, has plenty of
room to work inside, and has a folding platform
on the front to help personnel perform rescues.
35
On August 1, 2011, the ICFD went live
with Mobile Data Computers (MDCs)
in all apparatus. Eleven apparatus were
outfitted with Hub-Data911 mobile computer systems equipped with mobile software solutions
for vehicular environments. Tac10 fire mobile software provides unit connectivity to the JECC
and allows each unit to manually capture status changes, increasing the accuracy of response
time data.
Mapping and AVL/GPS functions are also provided via the MDCs, though not yet developed for
application by Tac10 and the JECC.
The mobile computers are connected to the ICFD’s records management software – Firehouse -
via the internet to access occupancy, fire inspection, incident data, and fire pre-plan information.
36
Through the Certified Fire Investigator (CFI) program, the International Association of Arson
Investigators (IAAI) seeks to acknowledge demonstrated competence in all phases of fire
investigation as held by individuals from many fields, both public and private.
The CFI Program of the IAAI has the following objectives:
Recognition of professional standards of achievement in fire investigation theory and
practice by government and private sector fire investigators.
Encouragement of continued education and training in the field of fire investigation.
Increased professional standing in the fire investigation field.
Identification of the sources of professional knowledge for the theory and practice of fire
investigation, related fields, and the laws and regulations governing or affecting fire
investigation.
The CFI program awards points for achievements in education, training,
and experience as they relate to fire investigation. These point totals are
subject to maximums in each of these areas, which further assure
substantial field experience as opposed to a primarily academic or
theoretical background. Certification is based on attainment of at least 150 points, as well as a
passing grade on a comprehensive examination covering the various job requirements for fire
investigators, as identified in NFPA Document 1033. Fire Marshal John Grier obtained his
Certified Fire Investigator (CFI) certification in September 2011.
The ICFD sponsored three personnel – one per shift – to
participate in the IAFC/IAFF Peer Fitness Trainer
Certification. These trainers will conduct an annual fitness
assessment on each ICFD personnel with follow-up, if
needed. Results of the assessments are only provided to the
participant with overall department results utilized for trend analysis. The trainers also provide
various training sessions, to include workout creation, nutrition advice, and proper exercise
technique.
37
The ICFD received an Assistance to Firefighters Grant (AFG) for just under $18,000 to be used
toward the Blue Card Command Training Program. The City of Iowa City also contributed
$4,337 toward the program. The ICFD was able to send one member to become an instructor
and an additional 23 personnel were able to complete the online and simulation classes to
become certified in Blue Card Command.
Blue Card Command is a training program designed to help officers and future officers sharpen
their tactical decision-making skills, time and resource management, and communications skills
with computer-aided fire ground simulations. Commanders must consider critical fire ground
factors; develop a risk management plan, a strategy, and an incident action plan in order to carry
out tactical priorities. The tactical priorities at every incident include life-safety, incident
stabilization, and property conservation.
Blue Card is specific to structure fire incidents and is to be used on Type 4 and 5 incidents. Type
5 is an incident that requires a response from local resources, i.e. residential house fire. Type 4 is
an incident that requires more than local resources and additional assistance is needed from
mutual aid throughout the county, i.e. commercial building fire.
After completing a 50-hour online course, Blue Card students then participate in a three-day
simulation based certification class. Those three days are spent reviewing the concepts learned
during the online portion and practicing the skills using computer-based simulations.
38
2012
Insurance Services Office, Inc. (ISO) Public Protection Classification (PPC) plays an important
role in the underwriting process at insurance companies. PPC is important to communities and
fire departments with the issuance of a respected benchmark that is used by many departments as
a valuable tool when planning, budgeting, and justifying fire protection improvements. ISO is
the leading supplier of data and analytics for the property/casualty insurance industry. Most
insurers use PPC classifications for underwriting and calculating premiums for residential,
commercial, and industrial properties. A community’s investment in fire mitigation is a proven
and reliable predictor of future fire losses. The ICFD’s PPC improved from Class 3 to Class 2,
on a scale from 1 to 10, effective November 1, 2012.
The ICFD is participating in the newly-formed Johnson-Linn Metro Dive Team. This team is a
multi-agency response coalition to prepare and respond to water rescues, drowning incidents,
crime scene investigations, etc. Agencies that make up the team represent law enforcement and
fire departments from Johnson and Linn counties. The various agency participants are ensuring
that their team participants are being trained and both counties are engaging in equipment
purchasing. The current expectation is that the team will be response ready in the spring of
2013.
iStation is a web portal built on a Microsoft SharePoint
platform designed to enhance fire department communications and provide easy access to
information through a user-friendly interface. Many fire departments have a snarled mix of
current and out-of-date information spread across multiple file shares, paper-based systems, and
third party applications. The iStation platform was customized to meet ICFD needs and went
live on February 1, 2012. Forms and policies are well catalogued in easy-to-access repositories.
Maintenance requests are smartly initiated and tracked for facilities, apparatus, and equipment.
39
iStation automatically launches when the computer is booted up, giving firefighters direct
communication through the use of announcements, conference call items, duty rosters, and a
master calendar of events.
Firehouse Analytics Improving Response Times
In February of 2012, the ICFD purchased the add-on module ― Firehouse Analytics‖ to its records
management software. Firehouse Analytics provides response time feedback to emergency
response personnel faster and more readily than ever before. An easy to navigate dashboard
provides real time information at a glance, giving immediate insight into staff training, turnout
and reaction times, incident compliance rates, and standards of cover.
Figure 3: Firehouse Analytics
The ICFD, as part of the Johnson County Hazardous Materials Response Team, utilizes a
decontamination trailer that is currently owned by the Veterans Administration Hospital, located
in Iowa City. The trailer sat idle for multiple years and county hazmat funding was utilized to
get it into working order. The trailer is stored at the Emergency Management Agency and can be
used for meth lab decontamination and any other hazmat situation.
40
Starting in the spring of 2012, the ICFD conducted quantitative SCBA fit testing for all
personnel. In the past, the process was of a qualitative design. The new process delivers
quantifiable, unambiguous results, as well as a direct measurement of fit factors.
In May 2012, the ICFD took part in a multi-agency response exercise that took place in the Iowa
City fire district. The exercise was
anchored as a WMD incident and it
was located at the University of Iowa
Carver Hawkeye Arena. The drill
incorporated a radiological and
chemical release with multiple
victims. Various local, regional, and
state agencies participated in this
multi-day event.
The ICFD was engaged in a long duration incident, starting on May 26th, when the landfill
drainage layer started on fire. The drainage
layer, consisting of rubber chips equating to 1.3
million tires over 7.5 acres burned for over two
weeks. This event required staffing of the
City’s incident command post with daily
operational and planning meetings. The
incident required participation and coordination
of multiple City departments, as well as a
disaster declaration to reach out to state and
federal resources. The damage caused an
estimated four million dollars, as well as an
extended disruption to the daily operation of the landfill.
41
As in every fire department, the ICFD responds to citizen assist calls. Sometimes those incidents
are repeat contacts. In an effort to assist those with identifiable needs, the ICFD has instituted a
process through which we collaborate with various agencies throughout the county. An
appropriate agency is then notified, dependent upon the type of need, to make a call/visit to the
needy citizen in an effort to improve their quality of life - this provides a decrease in the amount
of non-emergent calls the ICFD responds to.
A group of ICFD Firefighters proved they not
only know how to hold their own when tackling
a fire or an emergency situation - they also know
how to hold their own in a flag football game,
especially when it involves a little friendly
competition with other area emergency response
departments and the opportunity to raise funds
for charity. The ICFD Firefighters took top
honors in the annual Cedar Rapids Fire
Department Fire Bowl held September 9 at Coe College's Clark Field. The bowl, now in its third
year, helped raise more than $33,000 for Folds of Honor (visit their website at
www.foldsofhonor.org for more information), which provides assistance and scholarships for
spouses and children of service members killed or injured in service to our country. Each year,
the Fire Bowl selects a different charity for the football/fundraising competition. All members of
the ICFD Firefighters team, which was coordinated by Lieutenant Brandon Smith, sold raffle
tickets or team shirts to help raise funds. The Iowa City Professional Firefighters Local 610 also
served as an event sponsor and assisted the team. A total of 12 teams competed. The ICFD
Firefighters played and defeated four of them in the double-elimination tournament, including
defending champions from the North Liberty Volunteer Fire Department, Marion Fire
Department, University of Iowa Emergency Department, and Hiawatha Fire Department. Other
teams that competed included the Cedar Rapids Fire Department, Cedar Rapids Police
Department, St. Luke's Emergency Department, Linn County Sherriff's Office, Area Ambulance
Service, Dubuque County Sheriff's Office, and the Cedar Rapids National Guard. This is the
second year the Iowa City Firefighters have competed in the event. Last year, in their debut
effort, they took fourth place.
42
Community Description
Geography
Iowa City is located on both sides of the Iowa River in a rich agricultural area in southeast Iowa
in the heart of the Midwest, just south of the Coralville reservoir. This location, 25 miles south
of Cedar Rapids and approximately 55 miles west of Davenport and the Mississippi River, is
within easy reach of many of the major Midwest metropolitan centers, lying 300 miles north of
St Louis, a little over 200 miles west of Chicago, and 250 miles east of Omaha. The city covers
26.51 square miles in the central portion of Johnson County. Figure 4 below shows Iowa City
within the state of Iowa and the county of Johnson.
Figure 4 ICFD within Johnson County and State of Iowa
Topography
Iowa City has a wide range of elevations, generally sloping from the hills on the northeast and
west sides of town down toward the Iowa River and areas toward the south of town. The
average elevation for the city is 668 feet or 203.6 meters above sea level.
Johnson County
State of Iowa
43
Iowa City growth boundary is the area considered as the area outside of the city limits, in
unincorporated areas of Johnson County, where the City has agreements with other
municipalities for future annexation.
Figure 5: Iowa City Growth Boundary
Trails
Today the City manages over 1,600 acres of parkland/open space, which includes over six miles
of nature trails and miscellaneous other amenities such as tennis courts, basketball courts, bocce
courts, horseshoe courts, dog park, disc golf, etc. The City’s trail system has grown to include
over 50 miles of trails. In 2005, the department purchased a John Deere Gator to provide
emergency services within the City’s trail system.
44
Iowa City Parks and Trails Master Plan Map
The Willow Creek Trail on the west side of Iowa City is approximately two miles long and
connects to Willow Creek Park, Kiwanis Park, Walden Square commercial area, West High
School, and surrounding neighborhoods. Public parking is available at Kiwanis Park and Willow
Creek Park for trail access.
Two recently constructed links in the trail network include the IRP Dam pedestrian bridge,
linking Coralville to the Peninsula Park and the Iowa River Corridor (IRC) Trail and the trail
under Interstate-80, linking Waterworks Prairie Park to the rest of the IRC Trail System. These
projects show how trails are linking our communities closer together. Trail projects planned in
the near future include a trail along Ralston Creek between Creekside Park and Court Hill Park
45
in east Iowa City and a pedestrian bridge over the Iowa River adjacent to the Dubuque
Street/Iowa River bridge.
Parks
Iowa City has a policy of protecting sensetive natural areas and has been able to acquire some of
the low lying land near the river for conversion into parks and open space. The largest of these
parks is City Park.
Figure 6: Iowa City Parks
46
Streams and Other Bodies of Water
There are several creeks and streams in Iowa City that run into the Iowa River. The Iowa River
runs through the center of the city and several bridges provide access across the river. Several
creeks, including Clear Creek, Rapid Creek, and Deer Creek run along the outside edges of town,
which are generally less densely populated areas. Ralston Creek enters the city from the
northeast side of town and flows southwestward toward the Iowa River through some of the
older residential neighborhoods before it joins the river just south of downtown.
Figure 7: Iowa City Water Ways
47
The Iowa River in winter, as seen from the University of Iowa campus
Climate
Similar to most cities in the upper Midwest and due to its location in the central portion of North
America, the climate is continental in character. Iowa City experiences four seasons annually –
spring, summer, fall and winter. Because it is far from the influence of a large body of water, a
wide variation in both temperature and precipitation during the four seasons is common.
The following data tables contain Iowa City’s weather information, which was provided by the
weather base in May, 2012.
Figure 8: Days Temperature was Equal to or Greater than 90 Degrees Fahrenheit
0
10
20
30
2008 2009 2010 2011
Number of Days
Days Tempratures >= 90 F
48
Figure 9: Temperature Records
Highest Recorded Temperature Years on Record: 26
ANNUAL
JAN
FEB
MAR
APR
MAY
JUN
JUL
AUG
SEP
OCT
NOV
DEC
F 109 61 66 84 92 105 105 109 108 99 94 81 67
Lowest Recorded Temperature Years on Record: 25
ANNUAL
JAN
FEB
MAR
APR
MAY
JUN
JUL
AUG
SEP
OCT
NOV
DEC
F -23 -23 -23 -16 13 27 37 45 39 24 11 -4 -19
Iowa City’s climate is warm during the summer when temperatures tend to be in the 70s and
very cold during the winter when temperatures tend to be in the 20s. The warmest month of the
year is July, with an average maximum temperature of 87.50 degrees Fahrenheit, while the
coldest month of the year is January, with an average minimum temperature of 13.40 degrees
Fahrenheit. The highest recorded temperature was 104°F in 1988, while the lowest recorded
temperature was -26°F in 1996.
Temperature variations between night and day tend to be moderate during summer with a
difference that can reach 21 degrees Fahrenheit, and fairly limited during winter with an average
difference of 17 degrees Fahrenheit. The annual average precipitation in Iowa City is 37.27
inches. Rainfall is fairly evenly distributed throughout the year.
49
Figure 10: Weather Averages
Average Snowfall Years on Record: 63
ANNUAL
JAN
FEB
MAR
APR
MAY
JUN
JUL
AUG
SEP
OCT
NOV
DEC
in. 28.4 7.7 6.7 5 1 --- --- --- --- --- 0.2 1.8 6
Average Number of Rainy Days Years on Record: 99
ANNUAL
JAN
FEB
MAR
APR
MAY
JUN
JUL
AUG
SEP
OCT
NOV
DEC
Days 64.8 3.7 3.6 5.3 6.1 6.9 7.5 6.9 6.6 6 4.5 3.8 3.9
Average Relative Humidity Years on Record: 6
ANNUAL
JAN
FEB
MAR
APR
MAY
JUN
JUL
AUG
SEP
OCT
NOV
DEC
% 74 79 78 75 67 70 75 76 77 75 69 72 78
Average Dew Point Years on Record: 6
ANNUAL
JAN
FEB
MAR
APR
MAY
JUN
JUL
AUG
SEP
OCT
NOV
DEC
F 40 15 19 26 36 50 61 65 62 53 40 28 19
The maximum average precipitation occurs in June. Summer precipitation results primarily from
thunderstorm activity, although longer, less intense rains are common in the area. Other forms of
precipitation recorded in the area include snow, hail, ice pellets, and sleet. The annual average
rainfall is just over 64 inches, with June typically being the wettest month. The annual snowfall
average based on weather data collected from 1981 to 2010, from the NOAA National Climatic
Data Center is 27.2 inches (69.1 centimeters).
50
The pedestrian mall
in Iowa City1
1 Source: the Gazette, accessed Tuesday, September 20, 2011
51
Figure 11: Normal Precipitation
(Iowa City weather station, 0.76 miles from Iowa City)
Month Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Annual
Inch 1.10 1.15 2.36 3.75 4.52 4.82 4.54 4.89 3.43 2.78 2.41 1.52 37.27
There are no large bodies of water between the Rockies and Iowa, so meteorologists say Iowa is
in the ― rain-shadow‖ of the mountains. This means most of the time the west winds that cross
Iowa are dry and hot. Cool, dry air from the north provides relief from summer heat or it can
make it even colder in the winter. Southerly winds coming up from the Gulf of Mexico provide
most of Iowa’s precipitation.
Any of these systems can be in place for a long period of time. They produce stable, sometimes
pleasant, sometimes unpleasant weather conditions. Long periods of hot, dry winds from the
west can cause drought conditions. A continuous stream of moisture-rich air from the south can
cause flooding. When any two of the systems collide, there is a good chance there will be an
outbreak of severe weather.
Although weather impedance to emergency response is rare, the consideration of such a factor is
still important. Heavy snow and ice can seriously impede effective mobility as it did in 2007
when thick icy ruts caused truck axles to break. The department maintains close contact with
City staff from the Department of Public Works Streets Division, which is responsible for snow
52
plow operations. Iowa City enacted a snow emergency ordinance, which is designed to limit on-
street parking during a snow emergency to allow plows to access and clear the entire street
during extreme winter storms.
Population
The population in Iowa City has been steadily increasing since the 1940s. Between 1960 and
1970, there was a population increase of 40 percent. Another period of considerable population
growth occurred between 1990 and 2000 when population increased 18 percent. According to
the 2010 Census, Iowa City’s population is 67,862, an increase of 9.07 percent with an annual
growth rate of 0.91 percent since 2000, making it the sixth largest city in the state. The figure
below shows Iowa City’s historical population and population growth trend. Population density
in the year 2010 is depicted in Figure 13 by census blocks.
Figure 12: Population Growth Trend
7,987 10091
11267
15340
17182
27212
33443
46850
50508
59738
62220
67862
0
10,000
20,000
30,000
40,000
50,000
60,000
70,000
80,000
1900 1910 1920 1930 1940 1950 1960 1970 1980 1990 2000 2010
Iowa City Population Growth Trend
53
Figure 13: 2010 Population Densities by Census Blocks
The ICFD serves a permanent population of approximately 67,862 residents, according to the
2010 Census. The city’s population nearly doubles when University of Iowa classes are in
session. The daytime population inflates by at least 22,339 people2 due to job opportunities
created by the University of Iowa and other industrial and commercial organizations housed
within the city limits. That makes the service population approximately 90,201. Refer to the
2 Residents+ (Inflow-Outflow workers) = Total Build-out Service Population { 67,862 + (34,079-11,740*) = 90,201}
(*Source: Source: U.S Census Bureau, Center for Economic Studies )
54
charts below for a breakdown of the population by age cohort and percentage of selected age
groups in 2010.
Figure 14: Inflow/Outflow of Workers
Inflow/Outflow Job Counts (All Jobs) in Iowa City Count Share
Employed in Iowa City Area 52,312 100.00%
Employed in Iowa City but Living Outside 34,079 65.10%
Employed and Living in Iowa City Area 18,233 34.90%
Living in Iowa City 29,973 100.00%
Living in Iowa City but Employed Outside 11,740 39.20%
Living and Employed in Iowa City 18,233 60.80%
Source: U.S. Census Bureau, Center for Economic Studies, 2009
Figure 15: Population Trend in Iowa City and Johnson County
2000
2007
2010
2012
62,220 66,177 67,862 69,274
111,006 124,240 130,882 133,403
Population Trend in Iowa City and Johnson County
Iowa City Johnson County
55
Figure 16: Population by Age Cohort
Figure 17: Percentage of Population in Selected Age Groups
0
2,000
4,000
6,000
8,000
10,000
12,000
14,000
16,000
18,000
Total Population of Iowa City by Age Groups 2000-2010
2000
2010
8%
18%
59%
15%
Percentage of Population in Selected Age Groups 2010
Seniors (65+)Boomers (45-65)Young Adults (18-44)Children (under 18)
56
Figure 18: Population Linear Projection
Iowa City is attractive to senior citizens, due to the hospitals, cultural, arts, and retail
opportunities. The baby boomer generation is the fastest growing segment of the local
population. The percentage of older residents in the city has increased dramatically in the last
ten years; those in the age group 54-64 years old grew by 81 percent between 2000 and 2010 and
those 65 and older grew by 26 percent to total eight percent of the city population. The increase
is due to aging baby boomers and also due to the fact that Iowa City has been identified in
national publications as a very attractive place to retire and was named among the best places in
America to live.
67862 71400 75500 79500
130,882
147,400
164,800
182,200
0
50,000
100,000
150,000
200,000
2010 2020 2030 2040
Po
p
u
l
a
t
i
o
n
C
o
u
n
t
Year
Linear Projection of Population Growth
Iowa City Johnson County
57
Figure 19: RMZ Classification
RMZ Area in Square Miles Population Density Class
1 5.89 1,071 Suburban
4 3.99 1,349 Suburban
5 1.66 4,355 Metro
6 0.48 6,249 Metro
11 0.36 10,808 Metro
12 0.47 4,080 Metro
13 0.71 4,232 Metro
14 1.12 4,087 Metro
15 0.57 4,477 Metro
16 0.41 17,587 Metro
17 1.53 1,835 Suburban
18 3.4 2,600 Urban
21 0.35 10,890 Metro
23 1.38 3,262 Metro
104 1.8 1,882 Suburban
105 1.66 1,837 Suburban
58
Figure 20: Population Density by RMZ
Schools
The Iowa City Community School District is the fifth-largest school district in Iowa. On any
given school day, approximately 12,454 students are in Iowa City schools, 8,680 of them are
within the Iowa City Fire District. The school district has 17 preschool sites, 19 elementary
Schools, three junior high schools, two high schools, and one alternative school. The Iowa City
campus of Kirkwood Community College is one of the fastest-growing campuses in Iowa. More
than 3,500 students attend the Iowa City campus.
59
Figure 21: Iowa City Schools
60
The University of Iowa
Iowa City is the home of the University of Iowa.
Established in 1847, the University of Iowa is a
major national research university located on a
1,900-acre campus. The University of Iowa is
composed of 11 colleges, the largest of which is
the College of Liberal Arts and Sciences,
enrolling most of Iowa's undergraduates. The
Henry B. Tippie College of Business, the Roy J. and Lucille A. Carver College of Medicine, and
the Colleges of Education, Engineering, Law, Nursing, Pharmacy, enroll undergraduates. All
provide graduate degree programs along with the Colleges of Dentistry and Public Health.
Figure 22: University of Iowa Campus
61
More than 30,500 students enroll at Iowa each year: 55 percent come from Iowa, 25 percent
from adjoining states, and nine percent from the remaining states. International students from
100 countries make up 10 percent of the university's enrollment. Enrollment at Iowa reached a
record in fall 2012, with 31,498 students attending the university. The incoming class, 4470, is
Iowa’s most diverse ever, with 16.2 percent of them minorities. Iowa residents make up 47.2
percent of the class. The faculty numbers approximately 1,700 and approximately 13,000 staff.
There are more than 120 major buildings. Adding to the population are more than a million
visitors each year who come to enjoy cultural events and art exhibits, to attend Big Ten athletic
events, and to participate in the many conferences and educational programs scheduled at the
university year-round.
Kinnick Stadium (KS), shown on the map below
Hawkeye fans from all parts of the state of Iowa, the Midwest, and locations as far away as New
Jersey, Florida, Arizona, and Texas converge on Iowa City for an entire weekend of activities on
the Iowa campus. Tailgating activities continue all day as Iowa fans support their Hawkeyes.
Figure 23: University of Iowa Campus Zones
62
Demographic Features
Most of Iowa City’s population is white. Other principal races are African American and Asian.
Iowa City became more diverse over the past decade with non-white residents increasing from
12.7 percent to 17.5 percent of the total population. The Black or African American population
increased from 3.75 percent to 5.8 percent of the total population between 2000 and 2010. Iowa
City’s Asian population increased from 5.64 percent to 6.9 percent of the total population and the
number of Hispanics or Latinos of any race in Iowa City increased from 2.95 percent to 5.3
percent.
The chart below shows the racial mix of the city: 82.5 percent White, 5.8 percent Black or
African American, 0.2 percent Native American, 6.9 percent Asian, 2.1 percent from other races,
and 2.5 percent from two or more races; 5.3 percent of the population is Hispanic or Latino of
any race.
Figure 24: Racial Mix
The estimated median age in Iowa City in 2011 is 25.6 years, skewed by the student population
at the University of Iowa and Kirkwood Community College. This is an increase of
approximately 2.4 percent from 25 years of age in 2000, indicating Iowa City’s population is
growing slightly older. However, Iowa City remains a very young community, compared to the
White Alone, 82.5%
Other Race Alone or
in Combination,
17.5%
Black Alone, 5.8%
American
Indian/Alaska Native
alone, 0.2% Asian Alone, 6.9%
Some Other
Race Alone,
2.1%
Population 2010 by Race
63
nation as a whole, and is aging more slowly than the U.S. on average. The U.S. median age in
2008 was 36.9 - an increase of approximately 4.34 percent from the 2000 median age of 35.3. A
large part of the population is college-aged: Arranged by age, 14.9 percent of the population is
under 18, 33.4 percent is 18 to 24, 25.7 percent is 25 to 44, 17.8 percent is 45 to 64, and 8.2
percent is 65 or older.
Languages
According to the American Community Survey 2006-2008, among the population of Iowa City
urbanized areas (including University Heights and Coralville) who are five years old or older,
approximately 77,758 people speak English and 9,948 people speak other languages at home;
3,640 (37 percent) of whom speak English less than ― very well.‖3 It is assumed that the
percentages apply to the protected area. This is an important concern in terms of language
barrier as an impediment to the department’s response effectiveness. With this in mind, the
department is taking steps to create a work force that is, as much as possible, representative of
the community racial mix. The figure below is a break-down of the languages spoken at home
from 2008 data. Figure 17 shows Non-English speakers classified by language. Figure 18
shows how many of them speak English less than very well.
Figure 25: Languages Other than English Spoken at Home
3 Source: U.S. Census Bureau, 2006-2008 American Community Survey. Data is based on a sample and is subject
to sampling variability.
30%
29%
32%
9%
Languages other than English spoken at home
Spanish Other Indo -European Language Asian and Pacific Islander language Other languages
64
At Risk Groups
Generally at risk populations include 11,730 children (those under 18 years), 4,804 seniors (65
years or older), and about 353 individuals with physical and/or mental disabilities4. It is assumed
that these groups are more likely to require assistance during times of disaster and therefore are
considered, generally speaking, more ― at-risk‖ than the remaining population.
Inventory of Supportive Housing Facilities for Non-Homeless Special Needs Populations
Iowa City and Johnson County support a number of housing facilities occupied by persons with
special needs. These residential facilities serve persons with physical and mental disabilities,
persons who are elderly, and substance abuse patients. Following is a list of facilities in Iowa
City, the populations they serve, and the capacity of the facility.
Figure 26: List of People in Group Quarters
4 Source: U.S. Census Bureau, 2009 American Community Survey
5,468 people in college dormitories (includes college quarters off campus)
145 people in hospitals/wards and hospices for chronically ill
145 people in hospices or homes for chronically ill
119 people in other non-institutional group quarters
115 people in nursing homes
94 people in local jails and other confinement facilities (including police
lockups)
86 people in schools, hospitals, or wards for the mentally retarded
23 people in other non-household living situations
22 people in residential treatment centers for emotionally disturbed children
16 people in homes for the physically handicapped
15 people in homes or halfway houses for drug/alcohol abuse
4 people in homes for the mentally ill
3 people in religious group quarters
65
Educational Attainment
Iowa City is home to the University of Iowa and a small Kirkwood Community College campus.
The population increases during the months when the two schools are in session. Iowa City is
tied with Stamford, Connecticut, for the U.S. metropolitan area with the highest percentage of
adult population holding a bachelor's degree or higher. Close to half of the populace have a
Bachelor's degree or higher due to the graduates, professors, and other degree-wielding
individuals living in the city. For ages 25 years and over, high school diplomas have been
earned by 94.8 percent of the population group, Bachelor's degrees or higher by 55.9 percent of
the population group, and Graduate or professional degrees by 27.8 percent of those 25 years and
older.
Industries
Iowa City's economy is as diverse as it is prosperous and the city has received numerous
rankings and awards as a "Best Place" for business and quality of life. In 2004, Forbes
Magazine named Iowa City the third Best Small Metropolitan Area in the United States. In June
2006, Kiplinger's Personal Finance rated Iowa City number ten on its list of the Top 50 Smart
Places to Live. The leading industries in Iowa City representing 42 percent of the total are
education and health and social services. Retail trade represents 11 percent; arts, entertainment,
recreation, accommodation, and food services represent 10 percent of the industrial base (as of
2006 census estimates). The total number of firms in 2007 was 4,186.
The economy is based on thriving commerce, a major university, and a number of national and
international businesses. The University of Iowa is the city's largest employer. The academic
and research missions of the university, along with the health care services provided at its
hospitals and clinics, have a tremendously positive economic impact on the area. The University
of Iowa Hospitals and Clinics (UIHC) is the state's only comprehensive tertiary care center. The
Holden Comprehensive Cancer Center in Iowa City is an NCI-designated Cancer Center, one of
fewer than 60 in the country. Pearson, Oral B Laboratories, Procter & Gamble, the corporate
headquarters for ACT Inc., and scores of smaller industries and businesses operate facilities in
Iowa City. All of these businesses help Iowa City maintain a vibrant business environment.
66
Transportation
There are several modes of transportation within the Iowa City fire district, which include
roadways, a municipal airport, bus service, trails, a bicycle friendly community, and a rail line.
The Johnson County Council of Governments reports that according to the 2000 US Census,
Iowa City has far more pedestrian and bicycle commuters than the rest of the state, with 15.5
percent per capita pedestrians and 2.5 percent per capita bicyclists.
Airports and heliports located in Iowa City are:
Iowa City Municipal Airport (Runways: 2, Air Taxi Ops: 2,200, Itinerant Ops:
13,100, Local Ops: 3,700, Military Ops: 287)
Picayune Airport (Runways: 1)
University Of Iowa Hospitals & Clinics Heliport
University Of Iowa Hospitals & Clinics No. 2 Heliport
Iowa City Municipal Airport
Iowa City Airport
Iowa City’s general aviation airport – the Iowa City Municipal Airport - is located on the south
side of the city, two miles southwest of downtown.
67
Iowa City Municipal Airport Operations and Facilities
The Iowa City Municipal Airport is the second busiest general aviation airport in the state. It has
been operating since 1918 and is the oldest general aviation airport this side of the Mississippi
River. Eighty-four aircraft are based at the Iowa City Municipal Airport where approximately
36,000 flight operations are conducted annually.
The Iowa City Municipal Airport does not have a significant impact on the arterial street system.
South Riverside Drive, a four lane arterial street, provides vehicular access to the airport.
Existing Iowa City Municipal Airport facilities include two runways, the terminal building, a
maintenance facility, hangars, and fueling facilities. The airport terminal includes a pilots’
lounge, weather briefing room, lobby, classroom, and administrative offices. Fueling facilities
are provided for the fixed base operator.
The fixed base operator offers fuel sales, charter service, maintenance, flight lessons, and other
airport support services. Existing runway dimensions are 3,900 x 75 feet (Runway 12-30), and
5,004 x 100 feet (Runway 7-25), and are able to accommodate larger aircraft than many other
general aviation airports.
The airport is utilized by single
engine, twin engine,
turboprop, and business jet
aircraft, along with
helicopters. The airport also
offers aircraft parking.
Regional access to the
airport is provided by U.S.
Highway 218/27, I-80, I-
380, U.S. Highway 6, and
Iowa Highway 1. Eighty-four
aircraft are based at the Iowa City Municipal Airport. The Iowa City Municipal Airport supports
115 jobs in the Iowa City Area and contributes $11.2 million in economic output. A study on the
economic impact of aviation in Iowa was commissioned by the Iowa Department of
68
Transportation and estimates that 36,450 operations occur per year, and 70 aircraft visit the
airport each week on average.
The Airport Commission voted in 2009 to change the traffic patterns on Runways 7 and 12 to
right-handed traffic. The change provides increased safety for separation between aircraft and
helicopter traffic landing at the UI Hospitals & Clinics. In addition, aircraft landing traffic
patterns are shifted away from the residential areas to the north and northwest of the airport.
Waterways
The Iowa River runs through Iowa City.
Approximately 300 miles long, the Iowa River is
open to traffic to Iowa City, about 65 miles from its
mouth. The river is dammed to create the
Coralville reservoir just north of Iowa City to
provide flood control and recreation.
Highways
Four highways run through Iowa City: U.S. 218, Iowa 1, and U.S. 6. Interstate 80 runs east-
west along the northern edge of Iowa City. U.S. Highway 218/27 (The Avenue of the Saints)
runs north-south along the western edge of the city.
Thousands of trips per day are made on the
streets, roads, highways, and interstates that go
through Iowa City. If the designed capacity of
the roadway is exceeded, the potential for a
major incident increases. Weather conditions
play a major factor in the ability of traffic to
flow safely in and through the city, as does the
time of day and the day of the week.
69
Figure 27: Highways Serving Iowa City
Figure 28: Vehicle Collisions
70
Although certain intersections may pose a higher risk than others due to a tight turning radius or
low sight distance, traffic volume also plays a role, as streets with more traffic are more likely to
experience a higher incidence of accidents. Below is a map that dispays all accidents in 2006:
The Iowa City area has a higher than average number of highway transportation incidents
compared to the state as a whole. The following are department responses to incidents within the
Iowa City protected area, including highway and non-highway routes.
Figure 28: Vehicle Incidents 2008-2012
Year 2008 2009 2010 2011 2012
Vehicle Accident with Injuries 38 29 35 48 50
Accident involving Pedestrian 8 8 7 6 9
Accident with No Injuries 0 0 0 40 43
Total 46 37 42 94 102
Rail
Iowa City is served by the freight-only Iowa Interstate Railroad (IAIS) and the Cedar Rapids and
Iowa City Railway (CRANDIC). The main products handled by the IAIS, a class II railroad,
include farm products, food products, transportation equipment, waste and scrap products, and
metals. The CRANDIC is a class III railroad. The main products handled by the CRANDIC
include food products, coal, grain, paper, and hazardous materials.
The city and surrounding areas also stand to benefit from proposed rail improvements. The Iowa
Department of Transportation is working to initiate a new commuter‐oriented passenger rail
service in the Iowa City and Cedar Rapids Corridor on the Cedar Rapids and Iowa City Railway
Company (CRANDIC) lines. This corridor is well located to serve commuters traveling from
Cedar Rapids, North Liberty, and Coralville to Iowa City’s downtown and the University of
Iowa. Currently, there are no stops in the project area, although the line runs through the city
and a stop has been proposed for an area north of Lafayette Street, between Clinton and Dubuque
Streets, and in the northwest corner of the study area.
71
These new regional rail stops may serve as a catalyst for redevelopment and foster a change in
existing land use patterns. If these services are implemented, the city would be well-positioned
for transit‐oriented development (TOD) and could support higher density mixed‐use
development in the vicinity of these transportation facilities. It could lead to an intensification of
commercial uses along South Gilbert Court and a corridor of commercial and urban mixed‐use
along Gilbert Street. Moreover, there could be positive spillover effects to support denser,
mixed‐use, pedestrian‐oriented development.
In 2010, the State of Iowa received $230 million in transportation appropriations funds to create
a new intercity passenger-rail service between Chicago and Iowa City via the Quad Cities, by
upgrading 131 miles of track to meet FRA Class IV requirements, which will enable 79 mph
passenger-rail operations. Political support for the expenditure has waned since 2010 and the
entire project is currently undergoing further analysis.
Roads
Streets, roads, transit service and pedestrian and bicycle connections are vital elements for
creating accessible neighborhoods. The street system shapes development patterns and provides
connections within and between neighborhoods. Arterial streets serve as neighborhood
boundaries that are intended to carry high volumes of community traffic traveling between
homes, employment, shopping, and other destinations.
Mormon Trek Boulevard
72
Camp Cardinal Boulevard
Figure 29: Primary Roadways
73
Figure 30: Transportation Capacity
The Federal Highway Administration (FHWA) has a functional classification hierarchy for roads
and streets. The FHWA groups roads according to their functional system (location) and then by
subsystem (level of traffic mobility versus land access). The three functional systems include
rural, urbanized, and small urban areas. The subsystems include arterial, collector, and local
streets. The hierarchy of mobility ranges from automobile-oriented on the arterials to pedestrian-
friendly on the local streets. Higher levels of mobility suggest increased amounts of automobile
movement, whereas more land access indicates more direct access to surrounding land and an
elevated rate of multi-modal activity.
74
Figure 31: Transportation Level of Service Definition
Level of Service Description
Free Flowing LOS A
Relatively free flow. No restrictions to vehicle maneuverability or speed. Very
slight delay
Minimal Delays
LOS B
Stable flow. Some slight reduction in maneuverability and speed. Vehicle platoon
form. Slight delay
Acceptable Delays LOS C Stable flow operation. Higher volumes. More restrictions on maneuverability and speed. Acceptable delay.
Tolerable Delays
LOS D
Approaching unstable flow operation. Queues develop. Little freedom to maneuver. Tolerable delays for short periods.
Significant
Delays LOS E
Unstable flow or operation. Low operating speed; momentary stoppages. This
condition is not uncommon in peak hours. Congestion and lengthy delays.
Excessive Delays LOS F
Forced flow or operation. There are many stoppages. The highway acts as a
vehicle storage area. Jammed. Gridlock
Level of Service (LOS) is normally used to describe peak hour transportation conditions, which
occur during the early morning or late afternoon, when traffic is the heaviest.
Traffic engineers and planners use the LOS designations to evaluate the relative congestion of
roads and highways. It is used to design where and what type of roadway improvements are
required, such as location and timing of traffic signals, the configuration of intersections, and the
number of lanes for new streets. LOS is intended to provide an approximate measurement of
roadway operations similar to the driver’s perceptions of traffic conditions. The table above
provides LOS and their respective level descriptions. Figure 33 below shows level of service in
Iowa City roadways at peak hour. There are two road segments in District 2 classified as F LOS
which are considered impediments to response time efficiency.
75
Figure 32: 2012 Peak Hour Level of Service
76
Transit Service
The 2010 Census showed that among similarly sized communities, the Iowa City Urbanized
Area ranked tenth in the country for percentage of persons using public transit to get to work at
5.3 percent. The next highest percentage for a metropolitan area in Iowa was 1.6 percent. The
Iowa City Urbanized Area also ranked third highest in the country for persons walking to work at
10 percent.
Iowa City Transit is the primary provider of public transit in the north district. Two bus routes
offer residents of the north district connections to downtown Iowa City, the University of Iowa,
and to other destinations in the larger Iowa City area. The Manville Heights route provides
transportation to the western portion of the district, while the North Dodge route provides service
in the eastern half of the district. The University of Iowa’s CAMBUS provides fixed route
service to the Mayflower residence hall and the University of Iowa Bionic Bus and Johnson
County SEATS provide para-transit for persons with disabilities.
The North Dodge route was recently upgraded to provide increased bus service to the NCS/ACT
area. It is likely that the northern terminus of the Manville Heights route will be improved,
should Laura Drive be extended to provide a connection to Foster Road. Demand for transit
service may increase as new residential development occurs along Laura Drive and in the
Peninsula. Once Foster Road is extended, there may be sufficient demand to justify adding new
transit service or modifying existing routes to provide more efficient transit connections east of
Dubuque Street.
Iowa City has a higher than average number of buses and public transportation options compared
to most other cities in Iowa. Incidents involving buses and other high occupancy vehicles could
trigger a response that exceeds the normal capabilities of response agencies. Iowa City Transit,
Coralville Transit, and the University of Iowa's CAMBUS provide public transportation.
77
Land Use
Iowa City’s comprehensive plan presents a vision for the city, provides a strategy for realizing
the vision, and sets policies for the growth and development of specific geographic areas of the
city. The Comprehensive Plan also guides decisions on planning and development issues as they
arise. The broad principles set forth by the vision to guide the future of the city's development
serves as the foundation for more specific recommendations. Based on these principles, detailed
policies and action items outline how the vision can be realized. Iowa City’s vision is to
preserve the character and identity of the community while guiding the creation of compatible
new areas protecting the environment; encouraging diversity in the population, in housing, in
jobs, and offering opportunities for human development to all citizens. As guidance, land use
composition contributes toward achieving the greater vision of the city while providing the
opportunity for existing and future residents to live, work, and recreate.
Existing land use in Iowa City is predominantly residential. Single-family residential buildings
account for about 61 percent of total structures in the city and multi-family comprise 27 percent
of total structures (refer to tables below for more details). According to the American
Community Survey of 2011, there are an estimated 28,274 housing units in Iowa City. Forty-
two percent of the units are detached homes, while 47 percent of the housing stock is multi-
family units. Multi-family units with 20 or more units comprise 12 percent of total units. The
average number of units in a multi-family housing structure is 2.3 units. The table below details
the count and percentage of each type of housing.
78
Figure 33: Land Use Map
79
Figure 34: Total Housing Units
Source: U.S. Census, 2010
Figure 36 shows the residential structures as a percentage of the total number of structures in the
RMZ. Ninety-eight percent of structures located in RMZ 12 and 13 are residential and the
majority of RMZs 4, 5, and 15 are also residential.
Figure 35: Residential Structures Distribution
Units in Structure Count % of Total
Total housing units 28,274 100%
1-unit, detached 11,744 42%
1-unit, attached 3,128 11%
2 units 1,053 4%
3 or 4 units 1,276 5%
5 to 9 units 2,383 8%
10 to 19 units 4,171 15%
20 or more units 3,418 12%
Mobile home 1,101 4%
80
Most other areas are extensively single-family. Single-family units account for 53 percent of the
housing stock; many being larger lot single family households. However, there are a few new
condominium developments on the northeast side that are generally large (over 10 units) and not
targeted at the student population. New Station 4 was built in this area.
The table below shows a classification of all structures within the protected area by RMZ. Note:
University means the structure is owned by the University of Iowa. Governmental means the
structure is owned by Government.
Figure 36: RMZ Structures by Class
RMZ University Single-family Multi-family Government Commercial
1 1 1,396 380 15 81
4 40 1,247 485 4 46
5 9 918 1,303 3 81
6 44 335 294 2 86
11 17 450 376 3 156
12 0 738 34 0 12
13 0 1,152 273 0 45
14 0 1,199 438 10 84
15 0 1,073 102 2 40
16 1 373 384 5 108
17 9 1,047 61 14 481
18 0 1,671 964 4 257
21 58 3 211 11 394
23 72 613 133 30 13
104 2 4 3 18 197
105 0 607 321 6 83
City Total 253 12,826 5,762 127 2164
% of Total 1.20% 60.69% 27.27% 0.60% 10.24%
Note: Some residential units are located in commercial buildings.
81
General Housing Information
According to the 2010 Census, there are 29,270 housing units at a density of 1,079.4 housing
unit per square mile in Iowa City. 27,657 units were occupied in 2010 and 1613 were vacant.
Vacant housing units include units for sale or rent, units that were rented or sold but unoccupied,
units for seasonal or recreational use, and other units that were vacant at the time of enumeration.
Growth in the number of housing units well outpaced the growth in total households during the
last decade, both nationally and in Iowa. On average, the U.S. housing stock increased by 1.41
units per each new household. In Iowa, the ratio was 1.44 housing units per new household. A
century ago, an average of 4.5 people lived in each household in the United States. The average
U.S. household size has declined gradually through the decades, falling below four people
between 1930 and 1940 and dropping below three people between 1970 and 1980. In Iowa City,
the average household size in 2010 was 2.58 persons per household. The change in household
composition yielded more single parent families and more people living alone. Refer to the table
below for more details.
Figure 37: Change in Household Composition
Change in Household Composition: 2010 and 2000 Iowa City State of Iowa
2010 2000 2010 2000
Number of households 27,657 25,202 1,221,576 1,149,276
Percentage of households: % % % %
Family households 42.50% 44.40% 64.70% 67.00%
Married couple families with own children under 18 13.50% 15.90% 20.00% 23.90%
Single parent families with own children under 18 5.50% 5.30% 8.40% 7.50%
Male householder, no wife present 1.10% 1.10% 2.50% 1.90%
Female householder, no husband present 4.40% 4.20% 5.90% 5.60%
Householder living alone 34.30% 33.80% 28.40% 27.20%
Households with an individual under age 18 19.80% 22.20% 30.60% 33.30%
Households with an individual age 65 or older 14.50% 12.70% 25.50% 25.40%
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Area Development
2011 data shows a total of 223 building permits were issued for housing and mixed use.
Relatively few housing units were overcrowded in 2010. Across the Iowa City area, 1.8 percent
of the occupied housing stock was identified as overcrowded.
Assisted Housing
In addition to the private housing market, there is a substantial privately-assisted housing
inventory in the Iowa City metro area. Privately-assisted housing is privately-owned, but
affordable due to the funding source used to develop the housing units. This type of subsidized
housing differs from public housing, which is owned by a government entity. Eligible resident
households typically include those who are elderly (either 55 or 62 years of age or older), low
income (80 percent of median income or less), or disabled. Financing for these affordable units
typically comes from state and federal sources such as the Low Income Housing Tax Credit
Program (LIHTC), the U.S. Department of Agriculture’s Section 515 Program, HUD’s Section
202 (elderly), Section 811 (disabled), Section 236, and Section 221(d) (family) Programs.
Public Housing and Housing Choice Voucher Program
Currently, the Assisted Housing Program (administered by the Iowa City Housing Authority)
provides rental assistance to 1,171 housing units through two programs: Housing Choice
Voucher Program (HCVP) and Public Housing to assist families and individuals that are income
eligible (under 50 percent of the area median income) and meet the definition of a family. Both
programs operate at 96-103 percent occupancy levels.
HUD-Funded Apartments
A number of other funding sources are used by both for-profit and non-profit entities to provide
affordable housing. There are 991 HUD funded apartments for families, elderly, and persons
with disability.
Water Distribution System
The municipal water supply system is analyzed within the Iowa City Comprehensive Plan
(1997). The plan looks at the water supply in each district in terms of flow rate and pressure and
categorizes it as adequate or inadequate. This analysis is supported primarily by the Iowa City
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Water Division’s Distribution System Analysis Update – Master Plan for Service to Future Areas
(2007). The Master Plan analyzes the water system’s capabilities throughout the city and makes
recommendations for future improvements. The 2007 update spoke to two additional
underground storage tanks and the possibility of system expansion to Hills, North Liberty, and/or
a two-mile radius as potential issues for system planners. Iowa City Water Division runs the
production system that serves the entire city.
The City of Iowa City maintains a water system with fire hydrants for most of the department’s
jurisdiction. On the University of Iowa campus, the ICFD utilizes the university’s water system.
Both water systems maintain hydrant pressures between 65 and 105 pounds per square inch (psi).
The municipal water system at the Water Treatment Plant has a capacity of 16.7 million gallons
per day. There are four underground storage tanks in the system with a nine million gallon
storage capacity. The university water system has a capacity of six million gallons in winter and
10 million gallons in summer. The U of I maintains 2.75 million gallons in above ground
storage. The supply inventory includes the Iowa River – Four Collector Wells + SPPS as River
Intake + Deep Wells. System improvements since 2000 consist of over $50 million of
improvements, including installation of generators with automatic switchgear at the Emerald,
Rochester, and Sycamore Ground Storage Reservoirs (GSR). A one million gallon Bloomington
Street GSR was also added.
The new 16.7 MGD water treatment plant went on line in 2003, which included a 30‖
transmission line to the Rochester GSR (east side of town) with three connections to the system
and a 24‖ transmission line to the Emerald GSR (west side of town) with one connection to the
system. The new water treatment plant also has an emergency generator with automatic
switchgear. These major projects significantly improved reliability and system capacity.
The ICFD has used the Risk Hazard and Valuation Evaluation (RHAVE) process to quantify
risks in fire flow requirements in the risk management zones (RMZs). Based on these findings
and performance standards and goals, the ICFD developed a Standard of Cover (SOC).
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Figure 38: Breakdown of Hydrants
Breakdown of Hydrants Count
3 way hydrant (x2 2 ½ outlets and x1 steamer or 4.5 connection) 2,462
2 way hydrant (x2 2 ½ outlets) 765
1 way hydrant (x1 2 ½ outlet) 0
Subtotal 3,227
3 way hydrant (x2 2 ½ outlets and x1 steamer or 4.5 connection) 26
2 way hydrant (x2 2 ½ outlets) 9
Subtotal1 way hydrant (x1 2 ½ outlet where more than 250 gpm is available at 20psi) 35
4” branch line of smaller Subtotal 35
Total Hydrant Count Flush type hydrants (x1 2 ½ outlet where less than 250 gpm is
available at 20psi) 3,262
Figure 39: 2012 Fire Flow
The map below shows fire flow density based on flow tests for a sample of 100 fire hydrants.
The concentrations of higher flow hydrants are well suited for parts of the city that are the most
populated and have higher property values.
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B. DEPARTMENT SERVICES
The ICFD is dedicated to providing the community with progressive, high quality emergency
and preventive services. This part of the document - Department Services - helps orient readers
to the department’s services and deployment features. Department Services is sub-divided into
two parts: Service Delivery Programs and Service Deployment.
This section examines the ICFD’s ability to respond to and mitigate emergency incidents created
by natural or human-made disasters, and is a comprehensive analysis of detailed fire, emergency
medical services, hazardous materials, and rescue protection systems. Data for this report was
compiled from the fire department’s existing deployment strategy, community risk analysis,
critical task analysis, resource distribution study, resource concentration study, performance
study of historical data, and fire station concept study. Included in this examination is a
historical perspective of all four fire stations that make up the ICFD, data from the past five years
related to performance objectives and the department’s ability to meet those goals, and a
community risk assessment, which identifies areas of vulnerability in the current response areas.
The information will assist the department in its efforts to refine its performance measures and
work to improve service delivery across the entire response spectrum.
B. Department Services
Service Delivery Programs Service Deployment
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Information for this report was collected and studied in an effort to assist the ICFD in its effort to
make informed decisions concerning its ability to balance the community risk against the
department’s ability to fund service enhancements. The ICFD is committed to the concept of
continuous improvement. Service delivery models will reflect the ICFD’s commitment to safety
and customer satisfaction.
The ICFD provides an integrated all risk response to the community. Emergency services
include, but are not limited to, emergency medical services, fires, rescue response for vehicle
accidents, surface water bodies, confined space, technical rescue, and hazardous material
incidents.
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Service Delivery Programs
Fire Suppression
Fire suppression services provided by the department include responses to structure fires
involving single-family dwellings, multi-family, commercial and residential high-rise
occupancies, and commercial and industrial buildings. Other fire suppression services provided
are responses to fires involving mobile property, to include passenger and road freight transport
vehicles, rail, water and recreational vehicles, as well as fires involving heavy equipment and
small private aircraft. Fire suppression services for natural vegetation, landfill, and dumpster
(rubbish) fires are also provided.
The department currently operates from four fire stations and maintains a staff of 64 uniformed
suppression personnel. The department’s minimum daily firefighter staffing is 16 firefighters
and officers (maximum 20) responding on three engine companies, one quint company, one
truck company, and one Battalion Chief command van. Minimum staffing on each apparatus is
three personnel.
With regard to fire suppression, the ICFD responds to emergency incidents with specific
apparatus assignments. These assignments are based on potential incident severity, past
experience, and the associated risk-to-benefit analysis as determined by the ICFD. An
unconfirmed moderate risk suppression first alarm would minimally consist of ten shift
personnel on two engines (or one engine and one quint depending on incident location), a truck
company, and the battalion chief’s command van. A confirmed moderate risk suppression first
alarm would minimally consist of thirteen shift personnel on three engines (or two engines and
one quint depending on incident location), a truck company, and the battalion chief’s command
van. A high or special risk suppression alarm response would minimally consist of sixteen shift
personnel on three engines and one quint, a truck company, and the battalion chief’s command
van and automatic callback of off-duty ICFD personnel. High and special risk suppression alarm
responses include activation of the mutual aid box alarm system as requested by response
personnel. Included on all moderate suppression alarms is an administrative chief officer to assist
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in critical staffing needs. High or special risk alarms include a minimum of two administrative
chief officers.
All fire apparatus are equipped to meet typical fire suppression activities encountered by ICFD
personnel. The type and amount of equipment carried on apparatus is based on past experience.
Other determining factors include National Fire Protection Association (NFPA) standards
relating to apparatus and equipment, as well as Insurance Services Organization (ISO)
guidelines, which determine the fire protection area’s insurance rates based on the equipment and
level of protection provided. Equipment on all apparatus is standardized and/or similar,
including that on reserve apparatus.
The City of Iowa City has a 28E agreement with surrounding communities to provide fire
protection and other emergency services. The Mutual Aid Box Alarm System (MABAS),
adopted in November 2001, is a preplanned mutual aid system used to deal with emergencies
exceeding fire department resources. MABAS contains predetermined response of personnel
and equipment to five levels of alarm. In 2012, the ICFD received mutual aid 4 times and
provided mutual aid 23 times; automatic aid was received 20 times and provided on 12 incidents.
Emergency Medical Services
The ICFD provides first responder medical care at the Basic Life Support (BLS) service level.
All firefighters are trained and certified as Emergency Medical Technicians (EMTs); however,
16 are certified paramedics. The ICFD is a non-transport agency. Transport service is provided
by the County Ambulance Service (JCAS).
All fire apparatus carry Automatic External Defibrillation (AED units) for restoring heart
rhythms and personnel are recertified in their use quarterly. Shift EMS coordinators facilitate
monthly continuing education training.
With regard to Emergency Medical Services (EMS), the ICFD responds to emergency incidents
with specific apparatus assignments. These assignments are based on potential incident severity,
past experience, and the associated risk-to-benefit analysis as determined by the ICFD. Both low
and moderate risk events are minimally provided one unit with a minimum of three personnel
with BLS capabilities. High risk events are minimally dispatched to provide 10 personnel with
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BLS capabilities and special risk events will minimally provide 16 personnel. The Johnson
County Mutual Aid Box Alarm System (MABAS) will be utilized to augment resource needs as
determined by the incident commander. All Johnson County Mutual Aid Partners are trained
EMS first responders and can assist in that capacity.
Rescue
Technical rescue includes incidents where a successful operation requires the rescuer(s) to
employ special knowledge, skills, tools, and techniques. In comparison to firefighting, which
generally requires large numbers of personnel, technical rescue requires fewer personnel, but a
great deal of specialized equipment and intensive training.
The entire range of technical rescue includes auto and machinery extrications, confined space
rescue, trench and building collapse, high-angle rope rescue, and water and ice rescue.
Emergency operations also include many non-emergency services, such as carbon monoxide
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investigations, smoke and odor investigations, and miscellaneous requests for public assistance.
Three rescue technician level trained responders are available on-duty at all times.
With regard to rescue services, the ICFD responds to emergency incidents with specific
apparatus assignments. These assignments are based on potential incident severity, past
experience, and the associated risk-to-benefit analysis as determined by the ICFD. As with all
other risks, a low risk event will receive a response that includes three personnel. Moderate risk
events are provided a minimum of 10 personnel; high risk events a minimum of 16 personnel;
and special risk events a minimum of 16 personnel with a Special Operations Rescue Team call-
back and the resources available through the Johnson County Mutual Aid Box Alarm System
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(MABAS). Mutual aid partners have received operations level training by the department SORT
to assist with special risk events.
Hazmat
The ICFD’s hazardous materials (hazmat) response service was established in 1988. At least
three hazmat technician level trained responders are available and on-duty at all times. The
ICFD is prepared to respond to and mitigate the release of hazardous materials. Personnel are
trained to the hazardous materials technician level and front line engine companies are equipped
with basic tools to perform defensive operations in the event of a minor release. Such releases
might include fuel spills at a local filling station, a fluid cleanup resulting from a motor vehicle
accident or a carbon monoxide release within a structure. All apparatus carry the ERG, NIOSH
Pocket Guide, shovels, and binoculars. In addition, all engine companies carry oil dry. All
carbon monoxide incidents will receive a representative from the local gas company, Mid-
American Energy.
Members of the ICFD take part in hazardous materials training on the company and department
level. Company training topics concentrate on basic hazmat response competencies. Quarterly
department training is multi-company to include specialty classes and scenarios. Probationary
firefighters must successfully show proficiency with hazmat competencies within their first year
to realize technician status. These competencies are based on NFPA 472 standard.
Response and mitigation of larger, more complex incidents is accomplished in partnership with
the Johnson County Hazardous Materials Response Team (JCHMRT). The JCHMRT is a
combination team comprised of Iowa City firefighters, the Johnson County Sheriff’s office,
volunteer firefighters from departments within Johnson County, technical specialists, and
civilians. The team is under the autonomy of the Johnson County Sheriff and is directed by a six
person executive board. This board is made up of members of the team. Two are appointed, one
by the Iowa City Fire Chief and one by the Johnson County Sheriff. The Battalion Chief
assigned to Operations is the Fire Chief’s appointed board member. The county EMA director is
the sheriff’s appointment. The remaining board positions are voted on by the team membership.
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The JCHMRT utilizes a hazmat response unit that is housed at ICFD fire station 2. This
apparatus is a walk- in rescue body design and is fully stocked with hazmat response supplies.
Upon receipt of a call for service, this truck will be brought to the scene by those assigned to fire
station 2, if available, or by off-duty ICFD personnel or JCHMRT volunteer members.
Station 2 is the department’s hazardous materials specialty station. All personnel assigned to this
station are members of the JCHMRT. Station 2 personnel are the department’s hazmat
specialists and are responsible for the delivery of all departmental hazmat training. All personnel
assigned to Station 2 are sent to outside hazardous materials technician training. Currently, the
department is utilizing the Michigan State Police Academy in Lansing, Michigan for this
training. This course ensures station 2 personnel are getting contemporary, standards based
training.
With regard to hazardous materials response, the ICFD responds to emergency incidents with
specific apparatus assignments. These assignments are based on potential incident severity, past
experience, and the associated risk-to-benefit analysis as determined by the ICFD. All low risk
hazmat calls for service will be dispatched as a single engine company assignment with a
minimum of three personnel. Moderate risk events will be provided a minimum of 13 personnel.
A scene size-up to determine potential release and/or the degree of toxicity, flammability, or
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radiation will dictate a callout for the JCHMRT. A high risk event includes a full team roll-out
of the Johnson County Hazardous Materials Response Team. This callout is done via the
Johnson County Emergency Communications Center (JECC). Any need for a level A or B entry
will require the assistance of the JCHMRT. High risk events will be provided a minimum of 16
personnel. Special risk events will be provided a high risk assignment of 16 personnel minimally
and may require other specialists such as the Iowa WMD Taskforce and/or the 71st Civil Support
Team. The Johnson County Mutual Aid Box Alarm System can be utilized to provide additional
resources for hazardous materials response. All JCMA personnel are trained to hazardous
materials operations level.
Landfill Fire – Hazmat Element:
The tire chip fire that occurred at the landfill during the summer of 2012 proved difficult to
analyze and plan for. Station 2 personnel assisted the mitigation effort by modeling plumes,
making contacts with the 71st Civil Support Team (CST) and monitoring air quality at the site
and affected areas of the city.
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Charting plumes with the current JCHMRT software was difficult, due to limited database
information. Initial plume modeling was established by the JCHMRT until the 71st CST could
receive the proper approval related to the use of government technology. Once this arrangement
was established, plume modeling was transmitted daily to the incident command post to assist
with planning for upcoming operational periods.
Four-gas monitors and photo ionization detectors (PID) were utilized to establish safe areas, as
well as to determine where pyrolytic oil vapors were migrating. Because of the around-the-clock
presence at the landfill site, these monitors were used in conjunction with plume models to
ensure that response personnel were positioned in safe areas. Likewise, as the department
received calls for service throughout the community for strange odors, monitoring could take
place to identify the presence of vapors that were migrating via the sewer system.
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Service Deployment
Points of Service Delivery and Resources
All fire departments and districts in Johnson County are dispatched centrally by the Johnson
County Emergency Communications Center. The following map depicts the ICFD’s four fire
stations, as well as the other nine fire stations and fire districts within Johnson County.
Figure 40: Johnson County Fire Station Locations
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Sixty-four uniformed and one non-uniformed personnel are assigned to four major divisions:
Administration and Support, Fire Prevention, Training and Equipment, and Emergency
Operations. Services include fire prevention and education, fire suppression, emergency medical
care, technical recue, and hazardous materials emergency response.
Figure 41: Points of Service Delivery
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Figure 42: ICFD Resources
The ICFD operates a combination of three engines with 1500 gallon per minute pumps, each
carrying 750 gallons of water and 30 gallons of structural firefighting foam, one ladder truck
with a 2000 gallon per minute pump and 200 gallons of water, and one quint equipped with a
1500 gallon per minute pump, 500 gallons of water, a full complement of hose, ground ladders,
and light rescue equipment. A heavy rescue, hazmat unit and water craft are cross staffed by on-
duty personnel. Station 1 is staffed with a minimum of seven personnel, of which two are
officers. Stations 2, 3, and 4 are staffed with a minimum of three personnel at each location, of
which one is an officer or acting officer. The normal or routine daily staffing for stations is
detailed in General Policy. No. GP-130.05 – Staffing. Figure 40 shows emergency response
staffing.
64 Uniformed and One Civilian Personnel
4 Fire Stations
1 Training Center
3 Engine Companies
1 Quint Company
1 Truck Company
1 Cross-Staffed Rescue Company
1 Incident Command Van
1 Tow Vehicle
1 Tech Rescue Trailer
2 Public Education Trailers
1 All Purpose Gator
3 Water Craft
5 Reserve Engines
6 Staff Vehicles
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Figure 43: Emergency Response Staffing
NOTE: * Indicates E-4 personnel also operate R-4
Fire Administration and Support Services directs and manages the department and coordinates
division activities. Additionally, Fire Administration provides essential support, such as:
emergency management, public information, planning, budgeting, performance measurements,
logistics and support services, human resource management, community services, community
risk management, and community enhancement.
The ICFD Fire Chief is the highest ranking administrative officer in the department. As such,
the Fire Chief is the administrator of all activities the ICFD carries out. In addition, the Fire
Chief conducts all responsibilities set out by federal or state laws, City ordinance, and the
requirements of the City Manager, Mayor, and the City Council.
The Deputy Fire Chief provides direct administrative and/or emergency operations oversight and
serves on the senior management team. The Deputy Fire Chief plans, organizes, and directs the
staffing and training of administrative services, accreditation, homeland security, special
assignments, and related emergency response activities. The Deputy Fire Chief assumes the
duties of the Fire Chief in the event of absence and/or vacancy. The shift battalion chief
assigned to Administration and Support is responsible for buildings, grounds, calendar
administration, and the Health & Safety Committee.
On- Duty STATION 2 STATION 3
Battalion Chief Engine 1 Truck 1 Quint 2 Engine 3 Engine 4 Rescue 4
20 1 4 4 4 4 3*0
19 1 4 4 4 3 3*0
18 1 4 4 3 3 3*0
17 1 3 4 3 3 3*0
16 1 3 3 3 3 3*0
STATION 1 STATION 4
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Emergency Operations
The Operations Division works a three shift system. Each duty shift is comprised of 24 hours
and minimally consists of one Battalion Chief, one Captain, four Lieutenants, and 10
Firefighters. This division is directly responsible for fire suppression, emergency medical
response, hazardous materials response, rescue, and other emergency response duties assigned to
them.
Figure 44: ICFD Protected Area
Total Population,
2010
Area in Square
Miles Overall Density Total Housing Units
67,862 26.51 2,260 people per square mile 27,627
In 2012, the ICFD responded to 5,178 calls – an almost 16 percent increase from 2010. Total
call volume in 2012 was a 22 percent increase from five years ago.
Calls for service are divided into four categories: fire suppression, emergency medical services,
technical rescue, and hazardous materials. Emergency medical calls accounted for the largest
number of responses, with 2,876 calls for service in 2012.
Actual fire calls totaled 241 in 2012, with an additional 799 false alarms. The largest single fire
loss was estimated at $4 million for a fire that occurred at the Iowa City Landfill on May 26,
2012.
Figure 45: Incident and Firefighter per Population
2008 2009 2010 2011 2012
Non-fire incident per 1,000 population 60.2 58.75 63.29 65.07 71.61
Fire incident per 1,000 population 2.61 2.55 2.62 2.50 3.50
Sworn firefighter per 1,000 population 0.82 0.82 0.82 0.93 0.93
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Figure 46: Fire Incidents 2008-2012
The total amount of loss due to all fires in 2012 amounted to just over $4.9 million; the major
loss was attributed to a tire fire at the landfill, an estimated loss of $4 million. Evaluating
response time data over the past five years indicates the ICFD provides an effective response
force on the scene of a moderate risk unconfirmed structure fire within 10 minutes 45 seconds in
serving metropolitan and urban population densities, and within 12 minutes 54 seconds in
serving suburban population densities, 90 percent of the time. The ICFD continually seeks ways
to decrease response times to all emergencies. Examples of this include the recent opening of
Station 4 with its improved fire station design, resultant travel time reductions, and in the use of
videoconferencing for training sessions to ensure companies remain in their response districts.
The ICFD provides several technical rescue services: water emergencies, ice rescue, trench and
structural collapse rescue, vehicle and heavy machinery rescue, rope rescue, and confined space
rescue. The ICFD responded to 15 calls involving technical rescue in 2012. The Special
2008 2009 2010
2011
2012
179 177 178
173
241
Fire Incidents 2008-2012
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Operations Response Team (SORT) keeps skill levels high with team training, in addition to
regular company and shift training on various rescue disciplines. Station 4, the ICFD’s specialty
rescue station, is the centerpiece to the SORT, with Station 4 personnel coordinating all SORT
activities. The SORT was placed on stand-by a total of 150 occurrences, due to confined space
entries throughout the fire district in 2012.
Figure 47: Response by Type 2008-2012
The ICFD continues to be active and take a leading role in the Johnson County Hazardous
Materials Response Team (JCHMRT), which includes 13 ICFD personnel. The JCHMRT
consists of 31 members who are trained and certified to the Hazmat Technician level. The ICFD
responded to 177 hazardous conditions in 2012.
Existing Prevention and Occupancy Inspection Programs
The ICFD is committed to developing public private partnerships to implement and enhance fire
prevention awareness. It has adopted a strategic approach to fire prevention and overall life
safety. Starting with collecting data and trends to focus on inspection and education activities;
measuring the actual fire problem and fire loss potential with life and values at risk. The
frequency of inspections is based on fire history, fire potential, life-safety, and high risk
occupancy. The inspection cycle is influenced by factors that help establish fire and life safety
priorities. Priorities change based on identified problems, perceived problems, seasonal
0
500
1000
1500
2000
2500
3000
3500
2008 2009 2010 2011 2012
Co
u
n
t
Year
Response by Type
EMS/ Rescue
Fire
Other
HAZMAT
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influence, type of use of occupancy, code-specified inspection frequency, and new construction
versus existing properties.
Besides harshly enforcing its designated occupancy limits, the department has put in place an
educational program - Crowd Control Management Training - in which employees of businesses
receive training on dealing with evacuation. This approach provides engagement in the ever-
changing economic demands of the community and insight for fire prevention challenges the
department might face.
Code Enforcement
The ICFD and the City of Iowa City are proactive in the adoption of codes for fire prevention
and life-safety issues. The ICFD is proactive in establishing programs in fire prevention and in
allocating resources to attain the goals.
The City of Iowa City has adopted a number of codes directed toward fire prevention, life-safety
and the reduction of hazards. The ICFD and other City inspection personnel apply these codes to
various occupancies in the community. Compliance is assured by an assortment of penalties up
to and including closure of the business.
Public Education program
The public education program involves every member of the ICFD. The ICFD has partnerships
with several agencies, including the State Fire Marshal, the University of Iowa, University
Hospitals, Mercy Hospital, the Burn Treatment Center at University Hospitals, the City of Iowa
City Community Development Department, and the Iowa City Community School District.
Additionally, the ICFD is involved on a daily basis with public education through station tours,
extinguisher demonstrations and training, and safety talks.
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Training and Equipment
ICFD personnel are trained to fulfill the mission statement. Initial training of firefighters is done
during a six-week orientation process. Probationary firefighters are required to be EMT and Fire
Fighter I certified by the end of the first year of employment. Department-wide training is
accomplished via a yearly training schedule. Monthly training days are assigned for fire, EMS,
and rescue. Hazardous material training is held three or four times a year for at least eight total
hours. Other required topics, i.e. SCBA fittings and bloodborne pathogens, are addressed on an
annual basis. Emergency driving course and radiological monitoring are addressed annually;
defibrillation skills are recertified semi-annually and quarterly. In addition, the department’s
goals call for additional company level training in fire and rescue topics on a monthly basis.
New technical specialties are added to the training calendar on an as-needed basis. Company
officers have the latitude to initiate company training at their discretion to ensure their companies
are performing well. Certain technical rescue programs, such as confined space rescue, have
annual competency testing. Department training records are recorded in Firehouse by the
Training Officer. Company officers enter company training as it is conducted. Individuals who
travel for training record their training when they return. The ICFD received a Federal Fire Act
grant to train personnel on the Blue Card ICS curriculum – a training program geared to incident
command training.
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Two new 2011 Pierce Impel pumpers with the Pierce Ultimate Configuration (PUC) were placed
in-service. Each unit is equipped with a 1500 gallon per minute pump. The units each carry 750
gallons of water and the usual complement of hose and ground ladders, along with some light
rescue equipment. They are equipped with state-of-the-art safety systems, such as seat belt
warnings with frontal and side air bags. The cab is built to accommodate four firefighters. One
of the pumpers was assigned to Station 3 to replace an older pumper. The other pumper was
assigned to new Station 4. A new 2011 Pierce Velocity pumper was also placed in-service—this
apparatus is referred to as a Quint, due to its 75 foot aerial ladder, giving it extra capabilities.
The Quint is equipped with a 1500 gallon per minute pump and carries 500 gallons of water, a
full complement of hose and ground ladders, and some light rescue equipment. The Quint is also
equipped with safety systems to enhance firefighter safety. The Quint was assigned to Station 2.
The estimated total cost of all three apparatus is $1.9 million.
The ICFD took delivery on a new Rescue One 1660 Connector model boat on November 1,
2012. The boat is equipped with a light bar, emergency lighting, a vinyl top, and a cover. The
boat is a larger version of the jon boat it replaced, has plenty of room to work inside, and has a
folding platform on the front to help personnel perform rescues. Mobile Data Computers were
installed on all apparatus to aid in tracking response times and provide information on an
emergency scene.
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Fire Stations
Fire Station 1, 410 E Washington St.
Designated Headquarters
Station 1 houses the administration, emergency operations, and training divisions - Fire Chief,
Deputy Fire Chief, Battalion Chief, Administrative Secretary, Fire Marshal, and Training
Officer. Station 1 has a conference/training room, hose drying tower, three small storage rooms,
a filing room, and a Self-Contained Breathing Apparatus (SCBA) repair room. Living quarters
are located on the second floor with a designated exercise area and separate bathroom/shower
facilities for male and female personnel. Sleeping accommodations are single cubicles for 12
personnel on the second level. These non-private areas have a common bedding storage area.
The Station 1 office area also has cubical space for company officers, as well as an office and
dormitory for the Battalion Chief.
Station 1 was remodeled in 1990, which improved the amount of space for administrative use
and classroom space for training. The second floor kitchen was remodeled in 2012. Nine
company officers share three work stations, which provide minimal space for completing
required tasks. Private offices for completing employee evaluations, counseling, or discipline
issues are lacking. The engine room consists of three bays to house six pieces of emergency
equipment. Four additional staff vehicles are parked adjacent to the station in the public safety
area of the parking lot.
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Figure 48: Station 1 Equipment
Vehicle Name Equipment No. Model Year Vehicle Type Location
Deputy Chief Vehicle 359 2008 Car, Ford Taurus Station 1
Fire Marshal Vehicle 369 2008 Car, Ford Taurus Station 1
Command Reserve &
Travel Vehicle 337 2009 Car, Ford Escape Station 1
Shift Inspector 350 2011 Car, Dodge Dakota Station 1
Command Van 368 2009 Van, Ford E-350 Station 1
Fire Chief's Vehicle 373 2012 Car, Chevrolet Impala Station 1
Truck 1 T1 2006 Aerial Ladder Truck Station 1
Engine 11 352 2009 Pierce Engine Station 1
Engine 1 353 2009 Pierce Engine Station 1
Gator 334 2005 John Deere Gator Station 1
Fire Station 2, 301 Emerald Street
Designated as Hazardous Materials Response
Station 2 is designated as the hazmat station. It has taken on the function for storage of supplies
and equipment for the county hazmat team, i.e. over pack drums, decontamination equipment,
and bulk storage. Station 2 has added off-street parking space. Living quarters include a large
kitchen, living room, exercise room, locker room, six private sleeping rooms, storage cubicles,
and separate male/female bathroom/shower facilities. There is a small conference room/library,
as well as multiple work stations for firefighters to utilize.
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Figure 49: Station 2 Equipment
Vehicle Name Equipment No. Model Year Vehicle Type Location
Quint 2
(Primary) 358 2011 Pierce Quint Station 2
Engine 22
(Reserve) 354 2009 Pierce Engine Station 2
Hazmat 1 County-owned EVI Station 2
Fire Station 3, 2001 Lower Muscatine Rd
Designated as Public Education
Station 3 is designated as the public education station. Living quarters include four bedrooms,
an exercise room, male and female bathroom/shower facilities, and a large storage room. Station
3 has one outbuilding with 130 square feet of storage space.
Figure 50: Station 3 Equipment
Vehicle Name Equipment No. Model Year Vehicle Type Location
Engine 3
(Primary) 356 2011 Pierce Engine Station 3
Engine 33
(Reserve) 351 2003 Pierce Engine Station 3
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Training Facility, 1001 South Clinton St
In April 2002, the ICFD took possession of the North Wastewater Treatment Plant property,
which is currently the training center. The training facility allows for training in all types of fire
suppression, technical rescue, emergency medical services, hazardous materials, and personal
development, as well as classroom training to support hands-on training. The current facility
contains a four-story drill tower with standpipe system and sprinklers, a rail car, a live-fire
training room, a driver training area, and an outdoor portable fire training bunker. The facility
also includes a sub-grade to allow training for below-grade firefighting. A full array of
equipment is readily available at the training center.
Figure 51: Training Center Inventory
Vehicle Name Equipment
No. Model Year Vehicle Type Location
Engine 55
(Training Engine) 381 1995 Toyne Spartan Engine Training Center
Support 3 360 2012 Tow Vehicle Training Center
Training Van 370 2007 Caravan Training Center
Kids Safety House 333 2003 House Trailer Training Center
Tech Rescue
Trailer 374 2001 Trench, EBS Trailer Training Center
Sprinkler Trailer Unknown 2006 Trailer Training Center
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Fire Station 4, 2008 N. Dubuque Rd
The ICFD’s only heavy rescue apparatus – Rescue 4 – is housed at Station 4, Designated as EMS
and Rescue.
Figure 52: Station 4 Inventory
Vehicle Name Equipment No. Model Year Vehicle Type Location
Engine 4
(Primary) 357 2011 Pierce Engine Station 4
Engine 44
(Reserve) 355 2001 Toyne Spartan Engine Station 4
Rescue 4
(Cross-Staffed) 391 2010 Pierce HD Rescue Station 4
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Apparatus
Engine 1
Engine 3
Engine 4
112
Truck 1
Rescue 4
Command Van
Quint 2
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C. Community Trust
Within this section, the community expectations are detailed. The revised performance goals
have been recreated to ensure the level of service provided to the community is stated. This
section documents the efforts undertaken to ensure the community understands its current service
level and citizens are satisfied with the services currently being delivered.
This section also includes a discussion of the ISO rating, date of the last rating, and anticipated
next grading.
Community Trust is sub-divided into two parts: Community Expectations and Performance
Expectation Goals.
C. Community Trust
Community Expectations Performance Expectation Goals
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Community Expectations
Service Delivery Program Transitions
The ICFD’s business plan helps guide the department and its services. Each core service within
the department is met through four functional areas: Administration, Emergency Services,
Emergency Management, and Community Risk Management. These functional areas and
divisional responsibilities can further be expanded into programs that encompass all aspects of
the department’s core services that meet citizen needs and the City’s objective of promoting
community health, safety, and welfare. The ICFD’s responsibilities fall into seven programs:
Figure 53: ICFD Programs
Community Service Expectations
Understanding what the community expects of its fire and emergency services organization is
critically important to developing a long-range perspective. With this knowledge, internal
emphasis may need to be changed or bolstered to fulfill customer needs. In certain areas,
education on the level of service that is already available may be all that is needed. A facilitated
community driven strategic planning session was held to gather community and internal input.
The strategic planning process received 51 expectations from community stakeholders. The
following table lists in verbatim the top 20 community expectations in priority order:
Fire Administration & Support
Services
Emergency Management
Fire Prevention & Risk Reduction
Emergency Service Response
Fire & Explosive Investigations
Training & Occupational Safety
Fire Public Education
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Figure 54: Verbatim Customer Expectations in Order
1. Quick response.
2. To be courteous and professional at all times.
3. To be highly trained.
4. Knowledgeable about their job.
5. Firefighters in excellent physical condition to meet safety needs.
6. Service oriented.
7. Available to the public.
8. Highly dedicated.
9. To provide quality inspections with trained inspectors.
10. To have quality, up-to-date apparatus.
11. To utilize efficient and modern fire suppression practices.
12. The firefighters should have all essential equipment and facilities.
13. To value life and safety above property.
14. To have a community presence.
15. To keep the safety and welfare of the citizens first.
16. To rank at the top in terms of technical expertise.
17. To communicate with the community about the types of services that the
department provides.
18. To safeguard the citizens of Iowa City.
19. To be friendly.
20. To keep owners appraised of the situation.
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Performance Expectation Goals
Mission
The mission of the Iowa City Fire Department is to protect our community by providing
progressive, high quality emergency and preventive services.
Vision: We will honor our community’s trust by demonstrating our commitment to delivering
professional fire and rescue services with compassion, respect, and utmost courtesy. Through
expanded community involvement initiatives and the use of various external communications
methods, we will ensure that our service offerings are made available and are clearly understood.
By proactively identifying and analyzing Iowa City’s evolving risks, and the dynamic demands
of those risks, we will improve our response capabilities while implementing resource and
deployment strategies which are in the best interest of our community and the accomplishment of
our mission.
Our demonstration of service excellence through innovative and efficient operations will be a
priority provision to all those living, working, or visiting in our community. Our leadership and
workforce will hold one another individually accountable for applying our mission and values,
while continuously striving to reach our goals. It is our vision, through these efforts, that the
Iowa City Fire Department will consistently meet or exceed the expectations of our community.
Performance Goals
The strategic planning process gathered external (community) and internal (staff) input. The
process also completed a Strengths, Weaknesses, Opportunities and Threats analysis, or SWOT.
These tools helped identify performance targets and goals. The following goals were identified
by the process:
Goal 1: Develop a Comprehensive Training Initiative.
Goal 2: In order to ensure uninterrupted delivery of services, improve internal communications
and foster management consistency for better organizational effectiveness.
Goal 3: Develop and implement a marketing and communications plan to provide a clear
understanding of agency activities and service offerings.
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Goal 4: Maintain a high quality level of service to the community through the maintenance and
acquisition of physical resources (apparatus, equipment, tools, and facilities).
Goal 5: To provide a high quality service for the citizens of Iowa City, the ICFD should develop
and implement a Human Capital/Workforce Plan.
Goal 6: Ensure core programs meet jurisdictional and regional service delivery demands and
needs.
While not all of the community expectations have been listed, the external stakeholder input has
provided the ICFD with valuable information to help craft qualitative and quantitative
performance goals and objectives. All have been considered in the development of goals
outlined within the community-based strategic plan.
Community Service Priorities
A key element of the ICFD’s organizational philosophy is having a high level of commitment to
customers, as well as recognizing the importance of customer satisfaction. Therefore, the agency
asked representatives from their community to participate in a meeting which would focus on
their needs and expectations of the agency. Discussion centered not only on the present services
provided, but also on priorities for the future.
In order to dedicate time, energy, and resources on services most desired by its customers, the
ICFD needed to understand what customers considered as priorities. The External Stakeholders
were asked to prioritize the services offered by the agency through a process of direct
comparison. The strategic planning process also identified eight service program priorities from
community stakeholders. The following chart illustrates the community’s program service
priorities.
118
Figure 55: Customer Service Priorities
ISO Rating
To help establish appropriate fire insurance premiums for residential and commercial properties,
insurance companies need reliable, up-to-date information about a community’s fire protection
services. The Insurance Services Organization (ISO) provides that information through the
Public Protection Classification (PPC) program. The ICFD has an Insurance Services Office
(ISO) rating of Class 2, which is a high rating on a scale of 1 to 10, where 1 indicates exemplary
service and 10 indicates insufficient service. The department’s rating improved from Class 3 to
Class 2, effective November 1, 2012. ISO collects information on municipal fire-protection
efforts in communities throughout the United States. In each, ISO analyzes the relevant data
using the Fire Suppression Rating Schedule (FSRS).
By classifying the community’s ability to suppress fires, ISO helps communities evaluate their
public fire-protection services. The program provides an objective, country-wide standard that
helps fire departments in planning and budgeting for facilities, equipment, and training. By
securing lower fire insurance premiums for communities with better public protection, the PPC
program provides incentives and rewards for communities that choose to improve their
firefighting services.
1 Fire Suppression
2 Emergency Medical Services
3 Technical Rescue
4 Fire Prevention & Hazmat Mitigation
5 Fire Investigation
6 Public Fire/EMS Safety Education
7 Domestic Preparedness, Planning & Response
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D. COMMUNITY RISK ASSESSMENT
The fourth part of the CRESA-SOC was a Community Risk Assessment. The department driven
Community Risk Assessment was conducted to effectively develop a systematic approach to
resource deployment—matching the community’s demands in regard to risk with the appropriate
levels of service.
The Community Risk Assessment was a systematic process which examined two main
categories: Community Service Demand and Community Risks.
D. Community Risk
Assessment
Community Risks
Service Delivery Areas
RMZ
Community Service
Demand
Incident History
Incident Type
Incident Location
Incident Frequency
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Methodology Used in the Classification of Community Risk Levels
The relationships between probability and consequence are essential in the classification of
community risk levels and to the determination of the requirements in the community for the
needed concentration, distribution and commitment of resources.
Upon completion of community risk identification within each specific service delivery area, fire
and non-fire risk levels were classified using a probability and consequence methodology.
Probability actually speaks to the predictability of an event occurring, and through the
quantification of historical data, provides a method of projecting the frequency of future events.
Consequence refers to the result and therefore the impact of a particular emergency incident on
the community. For example, a fire in a nursing home may be an infrequent event, but it carries
an extremely high consequence to life and property. By utilizing this form of methodology, risks
were identified in each service area based on past incident data (probability) and whether or not
the potential loss severity (consequence) of life and/or property during future events could
significantly impact the community.
Fire Administration follow and analyze the three key concepts that, according to the CFAI, are
typical elements of the SOC:
Distribution — the station and resource locations needed to assure rapid response
deployment to minimize and terminate emergencies
Concentration — the spacing of multiple resources arranged so that an initial ― effective
response force‖ can arrive on-scene within sufficient timeframes to mobilize and likely
stop the escalation of an emergency in a specific risk category
Staffing levels — consist of the number of response-ready personnel and their
assignments
The department-driven Community Risk Assessment was conducted to effectively develop a
systematic approach to resource deployment. The second main category examined within this
assessment was designated community risks.
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The category of Community Risks was examined and evaluated based upon service delivery
areas and geographic areas (planning zones), which the department refers to as Risk
Management Zones (RMZs).
Risk Assessment Defined
Each community has risks. Risks are based on the probability of an event occurring and the
consequences of that event. Each creates different requirements in the community for
commitment of resources. The risk assessment was divided into four major components:
Low Probability, Low Consequences
Low Probability, High Consequences
High Probability, Low Consequences
High Probability, High Consequences
Increased Risk = Increased Concentration
Figure 56: Probability and Consequence Matrix
High Probability/Low
Consequence
Moderate Risk
High Probability/High
Consequence
Maximum Risk
Low Isolated Risk
Low Probability/Low
Consequence
High/Special Risk
Low Probability/High
Consequence
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The output of the risk identification and classification process resulted in a grading system
capable of achieving differential response and should be applied consistently throughout the
department’s service delivery area.
The concept of differential response refers to the department’s ability to send different
compliments of resources to an emergency based on the risk level present. It is important to note
that the principle of ― resources‖ encompasses not merely staff, but also appropriate apparatus,
water and/or foam delivery capabilities, technical response equipment, and knowledge, etc.
Whereas a fire in an outbuilding is indeed a structure fire, it presents a far different risk scenario
than a fire in a large commercial structure. A differential response system is designed to achieve
firefighter safety, as well as to provide system efficiency and effectiveness. Responses are not
― one size fits all.‖ Responses must be matched to the risk level of the event.
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Community Service Demands
Incident History
Incident history, by year, month, day, and hour was studied to calculate a probability of the event
occurring in the future. All calls for service over the last five years were included in the study.
Three groups of incidents were assessed: Fires, EMS and Non-fire (which includes all other
incidents not Fire or EMS related).
The number of calls has steadily increased with the population growth from 2,723 incidents in
1993 to 3,684 incidents in 2006. In 2012, the department responded to 5,178 incidents, an
increase of 22 percent since the year of accreditation award. Refer to Charts below for detail.
Figure 57: Incident Count Summary 2006-2012
3,684
4,143
4,257
4,155
4,473
4,643
5,178
3000
3500
4000
4500
5000
5500
2006 2007 2008 2009 2010 2011 2012
In
c
i
d
e
n
t
C
o
u
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t
Year
Incident Count Summary
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Incidents by Type
Analyzing incidents by type is an important factor when conducting a community risk
assessment. The 2012 data shows that EMS/Rescue incidents account for 60 percent of all
incidents. Figure 63 below shows incident by type for the year 2012.
Figure 58: 2012 Incidents by Type
The ICFD’s call volume by incident type showed no significant statistical differences when
considering day of week or month of year. The conclusion drawn is the department’s call
volume by incident type in those terms is consistent throughout the year. However, in terms of
year-to-year, the number of EMS/Rescue incidents has continuously increased since 2009
(Figure 64).
60%
5%
32%
3%
Incidents by Type
EMS Fire Other HAZMAT
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Figure 59: Incident Type Summary 2008-2012
Figure 60: Total Fire Incidents
The frequency of fire incidents (by hour of the day) is analyzed for the purpose of probability
(predictability). The graph below shows that the department responds to more fire incidents
around 6:00 p.m. Consistent with national findings, a leading cause of home structure fires is
cooking, with the most common area of fire origin being the kitchen. The following graph
shows that the department’s highest total incident volume for 2012 occurred during the 6 o’clock
hour (p.m.). Historically, most EMS/Rescue incidents in Iowa City occur between the hours of
8:00 a.m. and 6:00 p.m.
0
500
1000
1500
2000
2500
3000
3500
2008
2009
2010
2011
2012
102 118 93 101 151
77 59 85 72
90
2008 2009 2010 2011 2012
Total Fire Incidents
Non-structure fire Structure fire
126
Figure 61: Fire Incidents by Hour
Figure 62: EMS/Rescue by Hour
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Incident Location
Incident location is an important factor when conducting a community risk assessment. The
department uses two components to analyze incident location in Iowa City. The components are
Risk Management Zones (RMZ) and station response areas. Both components help create a
better understanding of where incidents occur in relationship to population densities, fire station
locations, and other specific areas of the community.
Incident occurrence was not evenly distributed across the protected area. In 2012, Station 1
responded to 41 percent of all incidents, followed in order by Station 3, Station 2, and Station 4.
Stations 1 and 2 are located in RMZs with metropolitan population densities, while Station 3 is
located in a suburban RMZ. Stations 2 and 3 had lower number of responses, but are located in
an area with very significant residential property values. Station 4 is located in the previously
underserved northeast quadrant of the city that is primed for growth and development.
Figure 63: Incident by Station
About 14 percent and 12 percent of all incidents occurred in RMZs 21 and 18 respectively, while
only 2.4 percent occurred in RMZ 104. RMZs 18 and 21 had the highest number of incidents of
all, both classified as ― High risk RMZs‖. RMZ 18 is home to 2,896 building structures; RMZ 21
has university buildings and a high density of businesses and day-time population. The map
below shows the number of incidents in 2012 by RMZ.
2124
1165 1369
520
1 2 3 4
Incident by Station-2012
128
Figure 64: 2012 Total Incidents by RMZ
129
Figure 65: Density of Calls, 2009-2011
130
Figure 66: 2010 Incidents' Density and Businesses Locations
Population densities are illustrated in the table map by the four color gradations, with each
corresponding to a different population density type within the city: Metropolitan (more than
3,000 people per sq. mi.); Urban (2,000 to 3,000 people per sq. mi.); and Suburban (1,000 to
2,000 people per sq. mi.
131
Figure 67: 2010 Population Densities by RMZ
132
Figure 68: Incidents by RMZ
RMZ Type EMS
2011
EMS
2012
18 Urban 357 436
21 Metro 346 373
4 Suburban 225 317
14 Metro 218 229
17 Sub-urban 218 255
16 Metro 200 246
1 Suburban 162 249
11 Metro 132 154
23 Metro 129 148
105 Suburban 116 144
5 Metro 113 127
6 Metro 84 95
13 Metro 72 73
12 Metro 68 89
15 Metro 54 76
104 Suburban 40 78
2012 Incident Counts and Percentages by RMZ
RMZ Fire EMS Other Total Fire EMS Other
1 13 249 152 414 3% 60% 37%
4 20 317 155 492 4% 64% 32%
5 12 127 71 210 6% 60% 34%
6 6 95 81 182 3% 52% 45%
11 16 154 126 296 5% 52% 43%
12 3 89 43 135 2% 66% 32%
13 9 73 42 124 7% 59% 34%
14 11 229 105 345 3% 66% 30%
15 1 76 30 107 1% 71% 28%
16 16 246 127 389 4% 63% 33%
17 22 255 126 403 5% 63% 31%
18 41 436 154 631 6% 69% 24%
21 30 373 302 705 4% 53% 43%
23 17 148 208 373 5% 40% 56%
104 7 78 41 126 6% 62% 33%
105 3 144 67 214 1% 67% 31%
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RMZ 21 ranked second in both fire and EMS incidents in 2012 and had the highest number of
total incidents for 2012. RMZ 21 is mostly populated by students and 90.5 percent of the
population is moderate to low-income. RMZ 18 had the highest number of fire and EMS
incidents in 2012 and had the second highest number of total incidents for the year. RMZ 18 is
classified as urban density RMZ. However, it has concentrations of multi-family housing
structures.
RMZ 4 was ranked third in EMS incidents and in all incidents, despite its classification as a
suburban RMZ; however, this RMZ has high concentrations of multi-family apartment
complexes of eight-unit structures, elderly population facilities, as well as a very high
concentration of low-income populations. In Iowa City, minority concentrations are defined as
RMZs that contain minority households of at least ten percent greater than the general
population. Only RMZ 4 met this criterion with 21.3 percent Asian/Pacific Islander residents
compared with 5.7 percent in the city overall. RMZ 4 is also a low-to-middle-income area with a
percentage of LMI persons of 54.3 percent (at least 61 percent of the RMZ’s households are
below 80 percent of median income).
Figure 69: Incidents by RMZ 2008-2012
1 4 5 6 11 12 13 14 15 16 17 18 21 23 104 105
2008 364 268 214 156 231 87 94 357 97 315 363 486 613 342 104 135
2009 312 353 188 162 255 83 103 306 85 339 323 428 683 335 51 134
2010 303 371 196 207 242 102 118 294 78 369 340 502 717 352 72 199
2011 307 416 191 159 239 122 117 298 97 397 403 571 666 343 72 226
2012 414 492 210 182 296 135 124 345 107 389 403 631 705 373 126 214
0
100
200
300
400
500
600
700
800
Co
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t
Total Incidents by RMZ
134
Generally, the total incidents count in an RMZ is consistent with its population and structure
density. In other words, RMZs with a higher structure density have a higher incident counts.
Figure 70: 2012 Incident Count by Type
Figure 71: Fire Incidents by RMZ
1 4 5 6 11 12 13 14 15 16 17 18 21 23 104 105
Other 135 146 63 75 114 42 37 99 24 121 114 136 290 199 39 65
Haz-mat 17 9 8 6 12 1 5 6 6 6 12 18 12 9 2 2
EMS 249 317 127 95 154 89 73 229 76 246 255 436 373 148 78 144
Fire 13 20 12 6 16 3 9 11 1 16 22 41 30 17 7 3
0
100
200
300
400
500
600
700
800
Incident Type by RMZ
0
5
10
15
20
25
30
35
40
45
1 4 5 6 11 12 13 14 15 16 17 18 21 23 104 105
Fire
2008
2009
2010
2011
2012
135
Figure 72: EMS/Rescue by RMZ
Figure 73: HAZMAT by RMZ
0
50
100
150
200
250
300
350
400
450
500
1 4 5 6 11 12 13 14 15 16 17 18 21 23 104 105
EMS/Rescue
2008
2009
2010
2011
2012
0
5
10
15
20
25
30
1 4 5 6 11 12 13 14 15 16 17 18 21 23 104 105
HAZMAT
2008
2009
2010
2011
2012
136
Figure 74: Other Incidents by RMZ
The following map denotes the location of all incidents for 2011:
Figure 75: 2011 Map of Incidents
0
50
100
150
200
250
300
350
1 4 5 6 11 12 13 14 15 16 17 18 21 23 104 105
Other Incidents
2008
2009
2010
2011
2012
137
Incident Location Conclusion
As was expected, the data analysis shows a direct relationship between service demand and
higher population densities and business locations. Overall, service demand is highest in high
density areas, as well as where people are concentrated during daytime.
Incident Frequency
The frequency of incidents is important to note when reviewing historical response data. This
type of comparative approach may help identify trends, such as concurrent incidents.
Concurrent incidents are those which happen simultaneously with one another, or whose
durations overlap in such a way that a single unit cannot handle both responses. In 2012, 24.9
percent of the 5,178 incidents were overlapping. The following chart illustrates the trend in
concurrent incident count by year.
Figure 76: Overlapping Incidents
First Due Conclusion
The number of overlapping incidents has risen to comprise nearly 25 percent of total incidents
and grew by 125 percent and 40 percent since 2006 and 2011 respectively, outpacing the 41
percent and 11 percent growth in total incidents. The growth in overlapping incidents can be
attributed to population growth, precision of data recording, and weather conditions.
0
1000
2000
3000
4000
5000
6000
2006 2007 2008 2009 2010 2011 2012
Incidents 3684 4143 4259 4155 4472 4643 5178
Overlapping 571 707 780 685 809 917 1288
Percent 15.5%17.1%18.3%16.5%18.1%19.8%24.9%
Overlapping Incidents
138
Community Risks
Service Delivery Areas
A comprehensive approach to community risks was undertaken within the context of service
delivery areas with the identification and assignment of risk that, for the purposes of this study,
were separated into three components: Risk Identification and Methodology, Risk Level
Classifications and Conclusions, and Critical Task Analysis.
Station Response Areas
Figure 77: Iowa City Fire District
139
The map below shows estimated station response areas based upon a four-minute travel or
― drive‖ time on local roadways. The map shows the department’s four fire stations’ initial
arriving company or ― first arriving‖ areas, together with the overlap between some stations in
regard to the four-minute drive (travel) time.
Figure 78: Station Response Areas within 4 Minutes Travel Time
All of RMZ 105, almost all of RMZ 13 and 104, and approximately half of RMZs 14, 4, and 23
are outside of the four-minute response time. This situation is particularly challenging as RMZ
23 and 4 are among the highest risk RMZ class.
140
Risk Identification
Risks were assessed as they pertained to each of the following five service delivery areas: fire,
EMS, rescue, and hazmat. The ICFD has a system in place to identify at-risk populations. Fire
loss, civilian death, and casualty records are analyzed to determine high-risk groups. Some
programs are also driven by national data analysis. Once these at-risk populations are identified,
an attempt is made to tailor a public education program to fit their particular needs.
Critical Task Analysis
In order to affect positive change, department staff must be properly assigned, resources must be
properly placed and equipped, and each individual must be assigned a critical task to complete.
Consequently, those individuals must arrive within a time-frame that allows them a chance to
intervene and stop loss or overcome a potentially fatal medical condition.
Not only is it necessary to assess and establish task assignments for fire and EMS responses,
critical task assignments are also necessary for non-fire risks. This section will establish critical
task assignments for risks associated with fire, EMS, rescue and hazmat.
Fire Risk
The chart below shows an approximately 35 percent increase in fire responses since 2009. Fire
responses, which represent 4 percent of the department’s total call volume, are clearly a smaller
percentage of the total when compared to non-fire responses. Nonetheless, fire responses pose
elevated risk because of the high hazard nature of fire.
Figure 79: Fire Response 2008-2012
0
50
100
150
200
250
2008 2009 2010 2011 2012
Fire Response 2008-2012
141
Structure Fires
Structural fires present a greater threat to life and property and the potential for much larger
economic losses. Iowa City has modern fire codes and fire suppression requirements in new
construction and building renovations, coupled with improved firefighting equipment, and
training and techniques, to lessen the chance and impact of major urban fires. Most structural
fires occur in residential structures, but the occurrence of fire in a commercial or industrial
facility could affect more people and pose a greater threat to those near a fire or fighting the fire.
The ICFD used Risk, Hazard, and Value Evaluation (RHAVE) to identify, categorize, and
analyze fire risk for all 21,139 buildings within Iowa City. The ICFD chose the RHAVE process
to identify the city’s hazardous areas, as well as analyze risks, potential risks, and identify the
city’s needs in terms of response time and service required.
Building Occupancy Risk Assessment
In most communities, the majority of losses occur in the smallest percentage of emergencies that
reach the significant destruction or loss ranges. The objective of risk assessment technique is to
reduce serious loss in a very unusual event in the community. This involves trying to keep
routine emergencies from becoming serious loss situations.
In 2005, the ICFD initiated the RHAVE program to identify potential hazards and level of risk
within Iowa City. The RHAVE process is administered by the Fire Prevention Bureau. In 2012,
a database platform was formulated to provide greater flexibility in sorting data and creating
reports. The software analyzes the data to calculate an Occupancy Vulnerability Assessment
Profile (OVAP) score. Six factors are considered in the formula. The building score includes
type of construction, exposure hazards, and access to the building, how tall the building is, and
square footage. The life-safety factor includes things such as occupant load, occupant mobility,
fire alarm equipment, and the existing system. The risk score includes the probability and
consequence of a serious fire incident based on regulatory oversight, human activity, and
experience. The consequence score quantifies the department’s capacity to control, the hazards
within a building, and combustible fire load that is present. The water demand score determines
the required fire flow for the building and the fire flow that is available at the closest fire
hydrant. The final factor included in the OVAP formula involves the potential impact a large
142
fire or loss would have on the community. The program groups the occupancy according to the
OVAP score. A building is considered a high risk if the score is greater than 50, a significant
risk if the score is from 40-49, a moderate risk if the score is from 16-39, and a low risk if the
score is 15 or less.
While risk factors all have some common thread, the rationale of placing occupancy within any
risk assessment category is to assume the worst. For example, fire flow as a risk assessment
criteria or requirement is based on defining the problem that will occur if the occupancy is totally
involved, and therefore creates the maximum demand upon fire suppression services.
RHAVE is made up of seven sections: Building Score, Life-Safety Score, Risk Score,
Consequence Score, Water Demand Score, Value Score, and the final OVAP score. Each
section has different categories that are scored from zero to five. The ICFD’s goal is to
objectively evaluate all of the city’s occupancies so there is a full and complete understanding of
the demands placed upon its fire department.
Figure 80: Number of Structures by RMZ
143
Building Score
Building Score is composed of six different categories: exposure separation, type of
construction, stories, access, and square footage. Exposure separation is defined by how far the
building being evaluated is from the next closest building. The closer the two buildings are to
each other, the higher the ranking.
Construction type is determined by the materials of which a building is constructed. The more
hazardous the construction materials used, the higher the score a building receives. Buildings are
also evaluated by how tall, or by the number of stories constructed. If a building is one to two
stories tall, it receives one point. If a building is seven to nine stories tall, it receives four points
toward the total OVAP score. Access sides to the building being evaluated include all doors
except garage doors and do not include windows. The lower the number of sides of access, the
higher amount of points an occupancy receives.
Figure 81: Structures' Density by RMZ
144
Life-Safety Score
Life-Safety Score is composed of four different categories: occupant load, occupant mobility,
warning alarm, and egress system. Occupant load is determined by how many people a building
can hold. If there is an occupant load ranging from zero to ten, one point is awarded. If there is
an occupant load greater than 300, five points is awarded. Occupant mobility is based on how
high a building is and the state of the occupants inside. The occupants inside a building could be
awake ambulatory, asleep ambulatory, or non-ambulatory/restrained. Warning alarm is
determined by the type of alarm present in a building. No alarm system present would receive
five points, while an automatic-central station alarm would only receive one point. The last
category, egress system, has two options: conforming and non-conforming. Most occupancies
in Iowa City have a conforming egress system.
Figure 82: Population Density per Structure
145
Risk Score
Risk Score has three different categories: regulatory oversight, human activity, and experience.
Regulatory oversight determines if a building is highly regulated with mandatory compliance
(industrial, one point), highly regulated with inspections scheduled (commercial, two points),
regulated with inspections scheduled randomly (residential, three points), etc. Human activity is
based on who has access to the building in question and how accessible the building is for
bystanders. All buildings have the same experience score, which is an annual event (four
points).
Consequence Score
Consequence Score has three different categories: capacity to control, hazard index, and fire
load. Capacity to control determines if a building is on fire how much damage that building will
do to the surrounding area and buildings. If the fire can be controlled within the building of
origin, one point is awarded. However, if the fire building is hazardous to firefighting activities,
five points are awarded. Hazard index gives more points to buildings with greater hazards. Fire
load is broken down as light (one point), ordinary hazard group I (two points), ordinary hazard
group II (three points), extra hazard group I (four points), and extra hazard group II (five points).
Water Demand Score
Water Demand Score is composed of two categories: required fire flow and fire flow available.
The required fire flow is determined from a fire flow spreadsheet. The fire flow spreadsheet
takes seven different factors into consideration: construction coefficient, building area,
occupancy factor, exposure factor, if the building has a wood roof, and whether or not the
building has sprinklers. Once a fire flow is determined from the fire flow spreadsheet, points are
awarded to the score. The lower the required fire flow, the lower the points that are achieved.
Fire flow available is determines whether or not the required fire flow that was calculated is
present at the closest fire hydrant.
146
Value score
Value Score has one category: property value. The point system for property value starts at 1.0
and increases in increments of 0.1 to reflect an increase in property value. If a building is a
personal/family loss, one point is awarded. If a building is an irreplaceable loss to the
community, it is awarded 1.4 points. Property loss due to fires totaled $2,861,590 and
$4,902,326 in 2011 and 2012 respectively.
Figure 83: Property Loss Due to Fire 2008-2012
250 179 177 178 69 241
$985,413
$467,325
$986,600
$441,355
$2,861,590
$4,902,326
0
500,000
1,000,000
1,500,000
2,000,000
2,500,000
3,000,000
3,500,000
4,000,000
4,500,000
5,000,000
5,500,000
2007 2008 2009 2010 2011 2012
Total Loss
147
Figure 84: Property Average Assessed Value Excluding Government and University
148
Once all of the hazard information is entered for each occupancy, an Occupancy Vulnerability
Assessment Profile (OVAP) score is calculated. Final OVAP scores are categorized as follows:
The Final OVAP score is an accumulation of all of the previous scores from each category,
which determines an overall score for each building. A building is considered ― maximum risk‖
if the score achieved is greater than 60 and a ― high risk‖ if a building achieved a score from 50-
59. A building is considered ― significant risk‖ if the score achieved is from 40-49. A building is
classified as ― moderate risk‖ if the score achieved is from 16-39 and ― low risk‖ if the score
achieved is 15 or less. The largest OVAP score achieved was 71 at the Iowa Memorial Union.
Using the RHAVE process, Fire Administration identified 3 ― maximum risk‖ buildings, 44 ― high
risk‖, 215 ― significant risk‖ buildings, 20,840 ― moderate risk‖ buildings, and 30 ― low risk‖
buildings. As a result of this analysis, the city proved to be comprised mainly of structures
having a ― moderate‖ risk profile as defined above. OVAP hazard statistics show that nearly 99
percent of the 21,139 occupancies reviewed were assigned a moderate risk level. The graph and
associated table below summarizes the overall results of the fire risk analysis.
Maximum - 60 or more
High - 50 to 59
Significant - 40 to 49
Moderate - 16 to 39
Low - 15 or less
149
Figure 85: Occupancy Hazard Statistics
Figure 86: Total Occupancy Hazard Statistics
Figure 87: Total Structures by Type of Use and Risk Class
Maximum 60+High 50-59
Significant 40-49Moderate 16-39 Low 0-15
3 44 215
20,840
30
Occupancy Hazard Statistics
Risk Level & OVAP Score
Risk Level OVAP Score # of Structures Value %
Maximum 60+3 191 0.0
High 50-59 44 2,372 0.2
Significant 40-49 215 9,248 1.0
Moderate 16-39 20840 482,321 98.6
Low 0-15 30 329 0.1
Average Score 23.4 21,132 494,461 100
CLASS Commercial Government Multi-family Residential Single-family Residentrial University
Maximum Risk (60+ OVAP)0% 0%0%0%100%
High Risk (50-59 OVAP)14% 2%2%0%82%
Significant Risk (40-49 OVAP)54% 5%15%0%26%
Moderate Risk (16-39 OVAP)10% 0%27%62%1%
Low Risk (15 or Less OVAP)10% 87%0%3%0%
150
Figure 88: Risk Category by Type of Structure
Figure 89: High Risk Buildings Map
0%
20%
40%
60%
80%
100%
120%
Commercial Government Multi-family
Residential
Single-family
Residentrial
University
Risk Category by Type of Structure
Maximum Risk (60+ OVAP)
High Risk (50-59 OVAP)
Significant Risk (40-49 OVAP)
Moderate Risk (16-39 OVAP)
Low Risk (15 or Less OVAP)
151
Attributes of a Building in Maximum Risk Category:
The ― Maximum Risk‖ category required an OVAP score equal to or greater than 60. There are
only three occupancies placed in maximum risk, making it the smallest category of the five. The
― High Risk‖ category has an OVAP score of 50-59. There are 44 occupancies in this category;
however 82 percent of the occupancies are university buildings and 14 percent are commercial
buildings. Generally, buildings in those two categories have occupancy loads of 300+ people,
require water flows in excess of 6000 GPM, and are valuable pieces of property. A majority of
these buildings don’t have the needed water flow available from the closest fire hydrant. All of
the Maximum Risk structures in the city are university buildings.
Figure 90: High Risk Buildings by RMZ
152
Attributes of a building in Significant Risk Category:
The ― Significant Risk‖ category has an OVAP score ranging from 40-49. These occupancies are
large with some having square footage of around 40,000. The height of the buildings varies from
one story to six stories tall. In this category, the type of fire alarm system a building has is
starting to become a factor. A lot of these buildings have no alarm system or some type of
manual alarm system. The hazards in this category range from common hazards to multiple and
complex hazards. Property value of these buildings is becoming a factor as well. This includes
moderate economic impact/severe causality exposure, severe economic impact/tax base or job
loss, and irreplaceable loss to community if these buildings are damaged or destroyed. The
majority of buildings - 54 percent - in this class-are commercial or university buildings as they
comprise 26 percent of this class.
Figure 91: Significant Risk Structures by RMZ
153
Attributes of a Building in Moderate Risk Category:
The ― Moderate Risk‖ category has an OVAP score ranging from 16-39. This category is the
most diverse when it comes to occupancy type. Occupancies with ― moderate risk‖ have various
characteristics.
Because this category is so diverse, it is hard to pinpoint any distinguishable characteristic that
separates occupancies in this category from occupancies in the other four categories. Most of
these buildings are large, have small exposure separations, a large occupant load, common
hazards, mixed hazards, and industrial hazards.
Almost all of the residential occupancies in Iowa City fall into the 15-39 OVAP score category.
Single-family residential being the predominant category comprises 62 percent of this class.
Multi-family residential comprises 27 percent. These residential occupancies include
apartments, zero-lot-lines, multi-family dwellings, single-family dwellings, and condominiums.
Most residential occupancies range from 21-26 with very minute differences present to cause
that range. Occupancies in this category have common and mixed hazards, an occupancy load
no greater than 50 people, have access on most sides of the building, and square footage under
15,000 feet.
154
Figure 92: Total Multi-family Structures by RMZ
Attributes of a Building in a Low Risk Category:
The ― Low Risk‖ category required an OVAP score equal to or less than 15. There are 30
occupancies in this category. All buildings in this category have access points on all sides, are
less than 7,500 square feet, are no taller than two stories, and have the lowest fire load, hazard
index, and water demand available.
Figure 93: Average OVAP Score by RMZ
RMZ Average OVAP Number of Structures Total Value
1 22.42 1,470 41,996
4 22.55 1,822 41,090
5 23.32 2,314 53,978
6 24.61 761 18,725
155
11 23.78 1,002 23,834
12 21.77 784 17,072
13 22.21 1,470 32,655
14 22.44 1,731 38,835
15 21.75 1,217 26,471
16 24.19 871 21,070
17 24.87 1,612 40,083
18 23.1 2,896 66,876
21 31.46 677 21,293
23 23.94 861 20,608
104 29.75 224 6,663
105 22.82 1,017 23,213
Figure 94: Average OVAP Score Map
156
Figure 95: RMZs Classification as Identified by RHAVE Program
Occupancy Hazard Statistics RMZ 21
Risk Level OVAP Score # of Structures Value %
Maximum 60+2 128 0.3
High 50-59 9 481 1.3
Significant 40-49 79 3,388 11.7
Moderate 16-39 586 17,281 86.6
Low 0-15 1 15 0.1
Average Score 31.46 677 21,293 100
Occupancy Hazard Statistics RMZ 23
Risk Level OVAP Score # of Structures Value %
Maximum 60+1 63 0.1
High 50-59 23 1,260 2.7
Significant 40-49 20 894 2.3
Moderate 16-39 817 18,391 94.9
Low 0-15 0 - 0.0
Average Score 23.94 861 20,608 100
Occupancy Hazard Statistics RMZ 104
Risk Level OVAP Score # of Structures Value %
Maximum 60+0 0.0
High 50-59 0 - 0.0
Significant 40-49 25 1,049 11.2
Moderate 16-39 198 5,599 88.4
Low 0-15 1 15 0.4
Average Score 29.75 224 6,663 100
Occupancy Hazard Statistics RMZ 105
Risk Level OVAP Score # of Structures Value %
Maximum 60+0 0.0
High 50-59 0 - 0.0
Significant 40-49 4 168 0.4
Moderate 16-39 1012 23,033 99.5
Low 0-15 1 12 0.1
Average Score 22.82 1,017 23,213 100
Occupancy Hazard Statistics RMZ 12
Risk Level OVAP Score # of Structures Value %
Maximum 60+0 - 0
High 50-59 1 50 0.1
Significant 40-49 1 44 0.1
Moderate 16-39 782 16,977 99.7
Low 0-15 0 - 0
Average Score 21.77 784 17,072 100
157
Occupancy Hazard Statistics RMZ 13
Risk Level OVAP Score # of Structures Value %
Maximum 60+0 - 0.0
High 50-59 0 - 0.0
Significant 40-49 1 43 0.1
Moderate 16-39 1469 32,612 99.9
Low 0-15 0 - 0.0
Average Score 22.21 1470 32,655 100
Occupancy Hazard Statistics RMZ 14
Risk Level OVAP Score # of Structures Value %
Maximum 60+0 - 0.0
High 50-59 0 - 0.0
Significant 40-49 3 134 0.2
Moderate 16-39 1722 38,642 99.5
Low 0-15 6 60 0.3
Average Score 22.44 1731 38,835 100
Occupancy Hazard Statistics RMZ 15
Risk Level OVAP Score # of Structures Value %
Maximum 60+0 - 0.0
High 50-59 0 - 0.0
Significant 40-49 0 - 0.0
Moderate 16-39 1215 26,451 99.8
Low 0-15 2 20 0.2
Average Score 21.75 1217 26,471 100
Occupancy Hazard Statistics RMZ 16
Risk Level OVAP Score # of Structures Value %
Maximum 60+0 - 0.0
High 50-59 0 - 0.0
Significant 40-49 11 473 1.3
Moderate 16-39 860 20,597 98.7
Low 0-15 0 - 0.0
Average Score 24.19 871 21,070 100
Occupancy Hazard Statistics RMZ 17
Risk Level OVAP Score # of Structures Value %
Maximum 60+0 - 0.0
High 50-59 2 102 0.1
Significant 40-49 21 924 1.3
Moderate 16-39 1589 39,058 98.6
Low 0-15 0 - 0.0
Average Score 24.87 1612 40,083 100
158
Occupancy Hazard Statistics RMZ 1
Risk Level OVAP Score # of Structures Value %
Maximum 60+0 - 0.0
High 50-59 0 - 0.0
Significant 40-49 9 382 0.5
Moderate 16-39 1850 41,459 98.8
Low 0-15 14 155 0.7
Average Score 22.42 1873 41,996 100
Occupancy Hazard Statistics RMZ 4
Risk Level OVAP Score # of Structures Value %
Maximum 60+0 - 0.0
High 50-59 1 50 0.1
Significant 40-49 4 175 0.2
Moderate 16-39 1817 40,864 99.7
Low 0-15 0 - 0.0
Average Score 22.55 1822 41,090 100
Occupancy Hazard Statistics RMZ 5
Risk Level OVAP Score # of Structures Value %
Maximum 60+0 - 0.0
High 50-59 0 - 0.0
Significant 40-49 4 168 0.2
Moderate 16-39 2309 53,800 99.8
Low 0-15 1 10 0.0
Average Score 23.32 2314 53,978 100
Occupancy Hazard Statistics RMZ 6
Risk Level OVAP Score # of Structures Value %
Maximum 60+0 - 0.0
High 50-59 0 - 0.0
Significant 40-49 14 617 1.8
Moderate 16-39 745 18,089 97.9
Low 0-15 2 20 0.3
Average Score 24.61 761 18,725 100
Occupancy Hazard Statistics RMZ11
Risk Level OVAP Score # of Structures Value %
Maximum 60+0 - 0
High 50-59 8 429 0.8
Significant 40-49 6 257 0.6
Moderate 16-39 988 23,149 98.6
Low 0-15 0 - 0
Average Score 23.78 1002 23,834 100
159
Fire Risk Factors
According to the U.S. Fire Administration (USFA), older adults are more vulnerable in a fire
than the general population due, to a combination of factors including mental and physical
frailties, greater use of medications, and elevated likelihood of living in poverty-like or fixed
income situations. As shown in Figures 104 and 104 below, RMZ 105, RMZ 5, and RMZ 6 have
populations with the highest number of individuals aged 85 years and older.
Employing probability and consequence methodology, it is significant that the U.S. Census
Bureau estimates that older adults comprise 12 percent of the population and growing. It is
estimated that the older population will rise sharply between 2010 and 2030, the years when the
baby boom generation will be in retirement. By 2030, the Department of Health and Human
Services Administration on Aging estimates adults aged 65 and over will comprise 20 percent of
the U.S. population.
In terms of consequence, the elderly continue to experience a disproportionate share of fire
deaths. According to the USFA, older adults represented 12 percent of the U.S. population, but
suffered more than 30 percent of all fire deaths. The relative risk of individuals aged 65 and over
dying in a fire is 2.6 times greater than that of the general population. The risk worsens as age
increases: the risk is 1.7 for adults aged 65 to 74, but soars to 4.7 for those over age 84.
With this in mind, it is notable that Iowa City has several multi-family residential structures
referred to as retirement communities, which are home primarily to older adults.
Likewise, according to the USFA, people in poverty-like or fixed income situations are more
vulnerable to fire risk. Using probability and consequence methodology, this fire risk level
conclusion can be drawn from numerous studies and data compiled by the USFA. The
Occupancy Hazard Statistics RMZ 18
Risk Level OVAP Score # of Structures Value %
Maximum 60+0 - 0.0
High 50-59 0 - 0.0
Significant 40-49 13 533 0.4
Moderate 16-39 2881 66,321 99.5
Low 0-15 2 23 0.1
Average Score 23.1 2896 66,876 100
160
probability aspect, and therefore the predictability of this impact on the community, can be
measured by quantifying the portion of the community living in poverty-like or fixed income
situations. Figure 103 below shows the distribution of low-to-moderate-income and minority
populations by RMZ.
Figure 96: Low to Moderate Income and Minority Concentration by RMZ
LMI persons, as determined by the Department of Housing and Urban Development (HUD),
have incomes at or below 80 percent of the median family income (MFI). In 2009 estimates,
HUD determined there were 29,895 LMI persons in Iowa City, equivalent to 53.2 percent of the
population for whom this rate is determined.
HUD defines an LMI-RMZ as one in which 51 percent or more of the population have incomes
of 80 percent or less of the MFI. According to this criteria, nine of the city’s populated census
RMZs qualify as LMI areas.
161
The City of Iowa City Housing Authority (ICHA) offers programs that provide housing at a
reduced rate for those meeting the annual gross income eligibility requirements, with priority
given to families who qualify for local working preference, are elderly, or have a household
member that is disabled.
Figure 97: 2010 Senior Populations
162
Figure 98: Population Age 85 or Older by RMZ
Special Housing
The U.S. Census defines disabled persons as those with impaired mobility, including the blind.
The number of disabled persons in a district has important planning and social implications,
which affect the demand for specialized access and EMS demands.
According to census data the most stable group is the age cohort of 65 years and older with an
increase of four-tenths of one percent as a percentage of total population. These people are often
life-long residents of Iowa City. However, there is a slight decrease in the number of elderly
single-person households. As shown by the maps, senior population is not evenly distributed
across the fire district. The largest number (249) of the Iowa City’s 85+ seniors, as well as 1,084
of the total 65+ population of the city live in RMZ 105.
163
This increasing demographic is realized daily by EMS providers, but its effect on fire operations
must not be overlooked. As this population shift continues so will the demand for housing that
meets the lifestyle demands of active senior citizens and those in need of much more advanced
care. According to the National Fire Protection Association, once a person reaches 65, the risk
of being killed or injured by fire doubles compared to the general population. Many
communities are seeing a building boom of senior care housing that is much different than that of
a generation ago, which resembled a sterile hospital environment. Many of these new facilities
have senior citizens with very different needs all living at a facility that might possess a single
street address. It is only through thorough pre-planning that fire departments will be able to
identify these occupancies and establish appropriate rescue and fire suppression strategies.
One of the objectives of the ICFD training program is to have firefighters demonstrate a basic
understanding of different types of senior communities and facilities. Firefighters will also gain
an understanding of fire operations at these facilities and learn how to educate staff, as well as
the senior occupants on fire safety.
Children and Fire
According to the U.S. Fire Administration, 52 percent of child fire deaths affect those under the
age of 5. Escaping from fire can be difficult for very young children because they lack the motor
skills and mental capabilities needed to quickly escape a burning building. The number of fire
injuries are also highest in the under age 5 bracket. Boys are at a higher risk of death from fire
than girls; African-American children are at an increased risk of death from fire. ICFD
prevention campaigns urge parents and caregivers to install and maintain working smoke alarms,
to safely store matches and lighters out of the reach of children, and to practice a fire escape plan
with small children.
164
Figure 99: Population Age 5 or Under by RMZ
165
Accessible Units
The Iowa City Housing Authority (ICHA) has 37 accessible units in its inventory. All 37 units
are currently occupied. Households receiving HCVP rental assistance needing accessible units
have also utilized the private market.
Figure 100: Incidents Density in Relation to Special Housing, 2010
166
Historical Buildings
Structure fires also pose a risk to the
community’s history. When fire strikes a
historic structure, the consequences may not
only be devastating to the building itself, but
also to the community as a whole. This is
especially true if fire destroys any one-of-a-kind
artifacts found within.
Fire, caused by workers using hand torches to remove asbestos from the building during an
exterior repair project, destroyed most of the gold dome of Iowa’s Old Capitol on Tuesday,
November 20, 2001. The building was built in 1840. It served as the last capitol of the Iowa
territory - from 1842 to 1846 - and as the first state capitol from 1846 to 1857. The fire caused
an estimated $5.9 million in damage. Restoration of the building took four and a half years and
approximately $9 million to complete. There are 68 properties on the National Register of
Historic Places in Iowa City.
Special Type Incident: Iowa City Landfill Fire
On May 26, 2012, the ICFD responded to a fire call at the Iowa City Landfill, located at 3900
Hebl Avenue, and one mile west of Highway 218 in Iowa City. The fire started at the working
face of the landfill where garbage was dumped earlier in the day. The fire quickly spread to the
landfill liner system, which includes a drainage layer of approximately 1.3 million shredded tires.
Once the fire was in the drainage system, strong south winds spread it quickly along the west
edge of the landfill cell. Landfill staff used bulldozers to cut a gap in the shredded tire layer to
contain the fire, but the fire spread across the gap before it could be completed. Staff regrouped
and cut two additional fire breaks to halt the rapidly moving fire.
167
Protecting the health and safety of the public and workers on-site remained the number one
priority for the City and all cooperating agencies as the tire shreds continued to burn. Also of
primary concern was keeping the fire from spreading to adjacent landfill cells and to a portion of
the new cell which was successfully isolated in the days following the fire's ignition. On June 1,
2012, Iowa City Mayor Matt Hayek signed a local disaster declaration. The declaration
facilitated access to state and federal resources, including advanced air quality monitoring and
thermal imaging technology to
assist with mitigating the
incident. The Johnson County
Health Department partnered with
the State Hygienic Laboratory,
Iowa Department of Natural
Resources and subject matter
experts with the University of
Iowa to monitor air quality
throughout the region. Officials
with the United States
Environmental Protection Agency
actively partnered with local and state officials on issues related to air quality. On Tuesday, June
12, 2012, environmental restoration contactors completed a stir, burn, and cover strategy to
finally contain the fire and stop the burning. Heavy equipment was in operation for a period of
nine days. The City estimated the loss to be $4 million.
Fire Risk Level Conclusions
A careful assessment and analysis of fire risk within the community has revealed numerous
valuable fire risk level conclusions. Clearly, the community faces a very real fire potential and
risk scenario, as demonstrated by the previous thorough discussion of fire risk as it relates to
probability and consequence.
168
Historical fire suppression response frequency and loss data speaks to the potential (probability)
of future fire occurrences within the community. Differing population densities within planning
areas (RMZs) also have a direct correlation to fire potential. Another reliable predictor of future
fire potential is the prevalence of at-risk populations within the community (i.e. children, older
adults, people living in poverty-like or fixed income situations). In conclusion, the city contains
risk characteristics allowing for the prediction of future fire occurrences within the community.
Single family residential structure fire events are classified as moderate fire risk while multi-
family residential and commercial structure fire events are classified as high fire risk because of
their significant potential life and/or property loss scenarios. The OVAP-style hazard approach
used within the fire risk analysis clearly demonstrates that factors such as occupant load and
mobility, size, property value, and capacity for fire control, have an unmistakable relationship to
potential fire loss. Iowa City’s youthful median age and the risk taking behavior frequently
associated with young people living away from home for the first time exaccerbate the risk and
probability. Unconfirmed moderate risk fires minimally require two engine companies (or one
engine and one quint depending on incident location) a ladder company, and a battalion chief for
a total of 10 shift personnel. Confirmed moderate risk fires will receive an additional engine or
quint to provide a minimum of 13 shift personnel.
High risk events and special risk events affect the community in terms of loss of life and/or
significant property, but also may have an important economic or historic impact to the
community. They will also certainly impact the department because of the large allocation of
resources to such events. In fact, very large fire occurrences are almost certain to bring the
department to the point of resource exhaustion. Therefore, the conclusion drawn is that
increased fire risk warrants an increased concentration of fire suppression resources. High risk
fires are allocated an initial response of three engine companies, one quint, a ladder company and
a battalion chief to provide a response force of at least 16 personnel. A callback of off duty
personnel will follow and the Johnson County Mutual Aid Box Alarm System (MABAS) may be
utilized to bring additional resources as required.
169
Certain fire occurrences are extraordinary in nature, and due to their low frequency of occurrence
and potentially high consequence to the community, are classified as a special fire risk.
Examples of special high risk fires include: fires in high-rise buildings, hospitals, university
research facilities, large assembly occupancies, and heavy manufacturing. Speical risk fires will
exhaust the ability of on duty crews to mitigate the incident. The Johnson County Mutual Aid
Box Alarm System (MABAS) will be utilitzed to assemble additional resources to mitigate the
incident. Experiential data suggests a MABAS third alarm will provide 50 personnel within 45
minutes of the alarm. The MABAS agreement provides two more alarm levels, for a total of five
alarms. Each alarm can be ordered with or without a change of quarters. The change of quarters
request provides one engine and four personnel to each of Iowa City’s four fire stations. A
second alarm will produce, on average, 16 off-duty ICFD personnel and two administrative
chiefs to the incident; a third alarm will add four apparatus, 16 personnel, and one chief; a fourth
alarm will add four apparatus, 16 personnel, and one chief; and a fifth alarm will add four
apparatus and 16 personnel, and one chief.
Other types of fire occurrences have been identified that are probable within the community;
however, they carry much less risk-and are of a lesser consequence to the community. These
events, such as appliance fires, flue fires, outbuilding fires, transport vehicle fires, and single
family dwellings are classified as either low or moderate fire risk. Fewer resources are allocated
to this type of fire risk level, and the impact to the department is less as well. Fires involving
passenger vehicles, rubbish or vegetation are included in this category.
The risk level classifications found on the following pages are designed to match risk with the
appropriate response force necessary to perform the critical tasks dictated by the specific incident
type. In other words, an effective response force must be assembled to perform the needed
actions (critical tasks) to control the incident and prevent its further escalation.
170
Fire Risk Level Classifications
The department-driven community risk analysis used probability and consequence methodology
in the classification of fire risk by considering the frequency of incidents and potential for loss.
By using this systematic approach, the following risk level conclusions are established
illustrating incident types and the correlating risk categories. The categories are low, moderate,
high, and special risk.
Low Automatic alarms and investigations are considered low risk. Included in the low
risk classification are fires involving passenger vehicles, rubbish, or vegetation.
Moderate Fires involving single family dwellings, machines/appliances, chimneys, and
outbuildings are considered moderate risk. Also included in the moderate risk
classification are transport vehicle fires and manufactured homes.
High Fires involving multi-family dwellings, large commercial structures, businesses,
and light manufacturing.
Special Fires involving high-rise buildings, hospitals, university research facilities, large
assembly occupancies, and heavy manufacturing.
The City of Iowa City maintains an agreement with other fire departments in our area to provide
fire protection assistance and other emergency services upon request. The agreement is called,
― The Johnson County Mutual Aid Agreement.‖ The details of the agreement are included in the
Johnson County Mutual Aid Box Alarm System (MABAS). MABAS is a preplanned mutual aid
system used by the Johnson County Mutual Aid Association to deal with emergencies exceeding
fire department resources. The Joint Emergency Communications Center (JECC) will utilize the
MABAS to dispatch personnel and equipment to the scene of an emergency incident. Iowa City
fire districts 1, 2, 3, and 4 are divided into 12 boxes. Each box can escalate, depending upon the
needs of the incident to a 5th alarm, with each alarm bringing additional apparatus and
personnel. Mutual aid assistance will be necessary to assemble an effective response force
capable of addressing the critical tasks necessary to control a special risk event.
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Fire Critical Task Analysis
According to the Commission on Fire Accreditation International, to create standard levels for
response in the mitigation actions, an assessment must be conducted locally to determine the
capabilities of the arriving companies and individual responders to achieve those critical tasks.
When identifying critical tasks, responder safety must be a priority.
An effective response force (ERF) is the number of staff necessary to complete all of the
identified tasks within a prescribed timeframe. The following tables show critical tasks and
associated risk with the ERF for the incident.
Figure 101: Critical Tasks and ERF by Risk Type
Fire Risk: Low
Critical Task Number of Staff
Command/Safety 1
Fire Attack 1
Pump Operations 1
TOTAL 3
Fire Risk: Moderate (Unconfirmed)
Critical Task Number of Staff
Command/Safety 1
Fire Attack 2
Back Up Line/RIC 2
Pump Operations/Water Supply 1
Ventilation/Ground Ladders 2
Search and Rescue 2
TOTAL 10
Fire Risk: Moderate (Confirmed)
Critical Task Number of Staff
Command 1
Safety 1
Fire Attack 2
RIC 2
Pump Operations/Water Supply 1
Ventilation/Ground Ladders 2
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Search and Rescue 2
Back Up Line 2
TOTAL 13
Admin Chief (ICS) 1
Fire Risk: High
Critical Task Number of Staff
Command 1
Safety 1
Attack Line 2
2nd Attack Line 2
Pump Operations/Water Supply 1
Back-Up Line 2
RIC 2
Search and Rescue 2
Ventilation/Utilities 2
Utilities/Exposure Protection 1
TOTAL 16
Admin Chiefs (ICS) 2
Fire Risk: Special
Critical Task Number of Staff
Command 1
Command Aid 1
Safety 1
Division Supervisors 2
Staging 1
Attack Line 2
2nd Attack Line 2
Pump Operations/Water Supply 2
Back-Up Line 2
Rapid Intervention 2
Search and Rescue 2
Ventilation/Ground Ladders 2
Utilities/Exposure Protection 4
Aerial Operations/Other 4
On Deck 2
Level 1 Staging 6
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Level 2 Staging 14
TOTAL 50*
Admin Chief (ICS) 2
*Equates to MABAS Alarm Level 3
EMS Risks
The most common type of call for service in Iowa City - like most fire departments across the
United States - is EMS response. EMS incidents are a significant risk to the community. Iowa
City sees an increase in EMS calls nearly each year. In 2011, the ICFD responded to 2,767
EMS incidents and in 2012 the ICFD responded to 3,089 incidents, an increase of 39 percent
since 2008.
Figure 102: 2011 Fire and EMS Incidents
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The following chart shows the department’s total EMS responses over the past five years.
Figure 103: EMS Responses
Figure 104: 2011 EMS Incidents as a Percent of Total
0
500
1,000
1,500
2,000
2,500
3,000
3,500
2008 2009 2010 2011 2012
2,223 2,315 2,310 2,534
3,089
EMS Responses 2008-2012
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Consistent with the probability and consequence methodology discussed earlier, the hot-spot
map below identifies the areas within the community with the greatest EMS density. The
frequency of EMS responses is greatest in the areas of the community with higher population
densities and somewhat associated with the special housing units discussed earler. Figure 98
shows the locations of the community’s special needs housing and nursing facilities.
EMS Risk Factors
Similar to fire risk, as discussed earlier, areas of the community characterized by populations
living in poverty-like conditions account for a greater service demand for EMS, as compared to
other areas of the community. This problem has been exacerbated by the increasing income gap
between the well-off and the poor in the U.S., and cutbacks in income support programs for low-
income households, with 4.7 percent of the population living below the poverty line in the 2010
Census.
The city’s population is growing older. According to the 2010 Census, 8.2 percent of the total
population are 65 years of age or older. The U.S. Census Bureau estimates that the number of
older adults within the community will rise dramatically between now and the year 2030. The
population of older adults is considered at-risk due to the population’s often non-ambulatory
nature, chronic medical conditions, increased use of medications, and elevated likelihood of
living in poverty-like or fixed income situations.
Dense populations of older adults can impact risk and the subsequent demand for EMS services
within the community. Subsequent high demand for EMS services has an obvious high
consequence to the community, due to the elevated levels of resources that must be allocated to
meet this demand. Unmistakably, these resources, once deployed, are unavailable to meet any
other service needs of the community as seen in the number of overlapping incidents that can
affect response time.
As mentioned earlier, Iowa City is home to many concentrated populations of older adults living
in multi-family dwellings and ― retirement communities.‖ Further, the city has numerous
facilities with an on-site skilled nursing component, which fall under the ― assisted living‖ and
― 24–hour-care skilled nursing facility‖ designations.
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EMS Risk Level Classifications
The following risk level conclusions are established:
Low Lift and invalid assists are considered low risk. Also identified as a low risk are
incidents involving people who may have obvious morbidity. Incidents involving
any Basic life Support (BLS) treatment are considered low risk.
Moderate Emergent EMS incidents, either illness (medical) or injury (trauma) are
considered moderate risk. These incidents include CPR in progress and all
Advanced Life Support (ALS) single patient incidents.
High Multiple patient ALS incidents, MCI events involving 10 or fewer patients and
multiple patient carbon monoxide incidents are considered high risk. (Vehicle
entrapment is categorized within risk classifications for rescue.)
Special Multiple patient/MCI events involving more than 10 patients are considered
special risk.
EMS Critical Task Analysis
According to the Commission on Fire Accreditation International, to create standard levels for
response in the mitigation actions, an assessment must be conducted locally to determine the
capabilities of the arriving companies and individual responders to achieve those critical tasks.
When identifying critical tasks, responder safety must be a priority.
An ERF is the number of staff/tasks necessary to complete all of the identified tasks within a
prescribed timeframe. The following tables show critical tasks and associated risk with the ERF
for the incident.
All incidents which fall within the EMS risk category low or moderate will be dispatched as a
single company response. If pre-arrival or on-scene information warrants, the first arriving
officer may special call additional resources. Risk category High will receive a minimum of 10
personnel; Risk category Special will receive a minimum of 16 personnel with additional
resources made available through the Johnson County Mutual Aid Box Alarm System.
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Figure 105: EMS Critical Task Analysis
EMS Risk: Low
Critical Task Number of Staff
Command/Safety/Documentation 1
Patient Care 2
TOTAL 3
EMS Risk: Moderate
Critical Task Number of Staff
Command/Safety/Documentation 1
Patient Care 2
TOTAL 3
EMS Risk: High
Critical Task Number of Staff
Command 1
Safety 1
Patient Care 6
Hazard Control 1
Triage 1
TOTAL 10
EMS Risk: Special
Critical Task Number of Staff
Command 1
Safety 1
Patient Care 12
Hazard Control 1
Triage 1
TOTAL 16*
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*In the event of an extraordinary special risk EMS incident the Johnson County Mutual Aid Box
Alarm System (MABAS) will be utilized to assemble additional personnel and apparatus as
stated in the fire critical task analysis. Mutual aid companies are certified first responders and
are qualified to assist and support the ICFD in accomplishing its mission.
Other Non-Fire Risks
The total number of non-fire incident responses has fluctuated over the past five years. The
lower frequency seen in recent years may be attributed to the City’s false alarm reduction
program. The purpose of the program is to reduce the number of false alarm calls for service to
which police officers and firefighters respond.
Figure 106: Non-fire Emergency Responses
1738
1649
1755
1697
1815
2008 2009 2010 2011 2012
Non Fire Responses
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Figure 107: Non-fire Response by Type
Rescue Risks
Although the frequency of technical rescue incidents in Iowa City does not compare to that of
fire and EMS, it was still necessary to identify rescue service risks, due to the high consequential
nature they present. These risks were divided into the following technical rescue disciplines:
vehicle extrication, confined space rescue, trench rescue, structural collapse rescue, rope rescue,
and water/ice rescue.
Vehicle Extrication: Given the amount of highway and roadway lane miles traversing Iowa
City, coupled with the prevalence of traffic collisions, there is a potential vehicle extrication risk
to the community. Vehicle extrication is defined as the process of removing a vehicle from
around a person that has been involved in a motor vehicle accident, when conventional means of
exit are impossible or unadvisable. Vehicle extrication risks were identified based on the most
recent published crash data from federal and state agencies, and by using trend analysis of the
department’s response to traffic collisions with vehicle extrications from 2008-2010 as a method
for predicting future occurrences. The National Highway Traffic Safety Administration
0
100
200
300
400
500
600
700
800
900
1000
FALSE Good
Intent Hazard Over
Pressure Service Special Weather
Non fire Response by Type
2008
2009
2010
2011
2012
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(NHTSA) reported 5.5 million motor vehicle collisions resulting in 1.5 million injuries and
30,797 fatalities across the United States in 2009.
Confined Space: There are many workplaces in the city that contain spaces considered as
"confined," simply because their dimensions and configurations hinder the activities of
employees who must enter, work in, and exit them. Examples of confined spaces include, but
are not limited to, the following: underground vaults, tanks, hoppers, storage bins, manholes,
pits, silos, sewage digesters, process vessels, tunnels, and pipelines. Generally, workers enter
into these spaces for the purpose of inspection, testing of equipment, maintenance, and cleaning.
Although an exact number of confined spaces and permit-required confined spaces are not kept
on record with the state of Iowa or the City of Iowa City, confined space risks were identified
based on national and state-level occupational fatality statistics and site hazard planning
conducted during pre-planning, business inspections, and training.
The Occupational Safety and Health Administration (OSHA) defines a confined space as any
space that has limited or restricted means for entry or exit, and is not specifically designed for
continuous employee occupancy. Spaces that meet OSHA’s definition of a ― confined space‖ and
contain health and safety hazards are called "permit-required‖ confined spaces. These spaces
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have one or more of the following characteristics: contains (or has the potential to contain) a
hazardous atmosphere; contains a material that has the potential to engulf an entrant; has walls
that converge inward or floors that slope downward and taper into a smaller area which could
trap or asphyxiate an entrant; or contains any other recognized safety or health hazard, such as
unguarded machinery, exposed live wires, or heat stress.
According to the Bureau of Labor and Statistics, a majority of confined space rescues occur as a
result of exposure to toxic environments and asphyxiation. Annually, the Bureau of Labor and
Statistics reports approximately 400 fatalities (437 in 2008, 404 in 2009, and 409 in 2010) from
exposure to harmful substances and environments. Although the frequency of responding to
confined space rescues is inherently low, as evident from the data listed above, it must be
considered because the hazards certainly exist within the community. Therefore, it is reasonable
to presume that because the hazards exists in many different forms throughout the community,
the risk potential is real and therefore the probability to respond to future occurrences cannot be
overlooked.
Trench Rescue: Trench rescue is defined as the process of rescuing a victim that has become
entrapped in a trench as the result of a cave-in or collapse at a construction site. OSHA defines a
trench as a narrow underground excavation that is deeper than it is wide, but less than 15 feet
wide. Trench excavation sites
pose a significant level of risk to
the community because of their
prevalence throughout the city.
Routinely, private contractors and
public works employees are
working in and around trenches
while performing maintenance and
repair to utilities and/or installing
new utilities. Trenching and
excavation work presents serious
risks to all workers involved, but
the greatest risk is that of a trench
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cave-in. According to the National Institute of Occupational Safety and Health (NIOSH), when
cave-in accidents occur, they are much more likely to result in worker fatalities than other
excavation-related accidents.
Similar to confined spaces, occupational accidents producing injuries and fatalities happen
regularly at construction sites, including trench cave-ins and falls. According to OSHA,
construction site accidents are very prevalent across the nation and report high consequences to
human life, listing approximately 1,200 fatalities per year. According to a 2010 Bureau of Labor
and Statistics report, 350 workers died in trenching or excavation cave-ins from 2000−2009,
showing a trend average of 35 fatalities per year. Although the frequency of responding to
trench rescue incidents is inherently low - as it is with other technical rescues - it must be
considered because the hazard exists, as well as the potential for fatal consequences. Based on
the aforementioned statistical data, it is reasonable to presume there is trench rescue risk
associated with excavation work being performed locally in the construction industry, and
therefore the potential exists to respond to trench rescue incidents in the future.
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Structural Collapse: Structural collapse rescue is defined as the process of locating and
removing trapped and often injured victims from partially or totally collapsed structures. The
collapse of a structure is usually the result of a natural or man-made disaster. Natural disasters
resulting in structural collapse are most often caused by natural events such as earthquakes,
tornadoes, and hurricanes. Man-made disasters resulting in structural collapse are usually the
result of human intent, error, negligence, or an engineering failure of a man-made system.
Although modern building codes have greatly reduced the risk of being hurt or killed in a man-
made structural collapse disaster, they cannot totally eliminate the risk altogether because of the
unpredictable nature of disasters. However, while the probability of a building collapse as the
result of a disaster is low, the consequences can be tragic and necessitate the identification of the
risk in the City.
Due to the fact that natural disaster data is more prevalent than man-made disaster data,
structural collapse risks were identified based on statistical weather data. Iowa ranks sixth in the
United States for tornado frequency, averaging 31 tornadoes each year. Based on those statistics,
it is reasonable to presume that there is a potential for a natural disaster to occur in the future
within the city of Iowa City; therefore, the same potential exists for structural collapse.
Iowa Avenue following EF2 tornado of April 15, 2006
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Rope Rescue: Rope rescue is defined as any rescue attempt that requires the use of rope and
related equipment to safely gain access to, and remove patients from, hazardous geographic areas
with limited access such as steep embankments, high rise buildings, or any type of above or
below grade structure (i.e. embankments, cell towers, bridges, spillways, silos, water towers,
high rise structures). Given the fact that most of these hazardous areas have already been
identified earlier in the document, the potential for rope rescue risk must be considered.
However, despite the amount of hazards within the city, rope rescue emergencies happen very
infrequently. In fact, the ICFD has only responded to one incident in the last four years. Also,
statistical data for rope rescue incidents is not compiled by any local, state, or federal agency,
thus making it nearly impossible to quantify rope rescue risk. Therefore, although rope rescue
incident data is lacking to show possible trends, the ICFD has identified rope rescue risks based
on site hazard planning conducted during pre-planning, business inspections, and training as a
method for predicting future occurrences.
Water/Ice Rescue: Water related activities, bodies of water (lakes, ponds, creeks, etc.) and
containers of water (pools, etc.) pose risk to the community. According to the Center for Disease
Control (CDC), about ten people die every day from unintentional drowning. Of these, two are
children aged 14 or younger. Drowning is the sixth leading cause of unintentional injury death
for people of all ages and the second leading cause of death for children ages 1 to 14 years.
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Iowa City owns three commercial swimming pools. The CDC data also shows that males,
children, and minorities are most at risk. According to the CDC, nearly 80 percent of people
who die from drowning are male. In addition, children ages 1 to 4 have the highest drowning
rates. In 2007, among children 1 to 4 years old who died from an unintentional injury, almost 30
percent died from drowning. Fatal drowning remains the second-leading cause of unintentional
injury-related death for children ages 1 to 14 years. The data continues by saying between 2000
and 2007, the fatal unintentional drowning rate for African Americans across all ages was 1.3
times that of Caucasians. For American Indians and Alaskan Natives, this rate was 1.7 times that
of Caucasians. The rates of fatal drowning are notably higher among these populations in certain
age groups. The fatal drowning rate of African American children ages 5 to 14 is 3.1 times that
of caucasian children in the same age range. For American Indian and Alaskan Native children,
the fatal drowning rate is 2.3 times higher than for caucasian children. Factors identified by the
CDC, such as the physical environment (i.e. access to swimming pools) and a combination of
social and cultural issues (wanting to learn how to swim and choosing recreational water-related
activities), may contribute to the racial differences in drowning rates. The CDC continues by
noting that current rates are based on population and not on participation. If rates could be
determined by actual participation in water-related activities, disparity in minorities’ drowning
rates compared to Caucasians would be much greater.
The ICFD responded to three ― water-ice rescue‖ incidents in the years 2008 to 2012. Although
the historical occurrence may be considered low locally, the potential life-threatening
consequence, especially to males, children and minorities, is unacceptable in any community.
Rescue Risk Level Conclusions
A careful assessment and analysis of rescue risk within the community has revealed numerous
valuable rescue risk level conclusions. Clearly, the community faces a very real rescue potential
and risk scenario, as demonstrated by the previous thorough discussion of rescue risk as it relates
to probability and consequence.
Rescue risk potentials were classified by type, to include the technical rescue disciplines of
vehicle extrication, confined space rescue, trench rescue, structural collapse rescue, rope rescue,
and water/ice rescue. Historical rescue response frequency data speaks to the potential
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(probability) of future rescue occurrences within the community. Each rescue type’s potential is
substantiated by the widespread presence of structures and areas within the community that carry
with them specific hazards. Certainly, the city’s large number of roadway lane miles create a
vehicle extrication potential. Similarly, for example, the prevalence of industrial occupancies
and bodies of water in the community illustrate confined space rescue and water/ice rescue
potentials, respectively.
Traffic injury accidents with extrication, industrial accidents, vehicles colliding with buildings,
and water/ice rescues are classified as a high rescue risk because of their inherent probability of
occurrence, as well as for their significant potential loss scenarios. In addition, the level of
difficulty of these rescues is of an elevated nature, making potential negative consequences more
likely.
Many rescue occurrences are exceptional in nature, and due to their low frequency of occurrence
and potentially high consequence to the community, are classified as a special rescue risk.
Examples include: structural collapse, rope, trench, confined space, and high angle rescues.
Understandably, also included in this risk category is a natural disaster mass casualty incident
(MCI), such as a tornado strike, a man-made disaster, or a downed aircraft. Of course, the level
of difficulty in mitigating such an event is extraordinary, making potential negative
consequences much more likely.
High risk rescue and special risk rescue occurrences affect the community in terms of significant
injury or loss of life, but also may have an important economic impact to the community. They
will also certainly impact the department because of the large allocation of resources to such
events. In fact, large MCI occurrences are almost certain to bring the ICFD to the point of
resource exhaustion. Therefore, the conclusion can be drawn that increased rescue risk means an
increased concentration of (need for) rescue resources. Dispatch protocols are constructed to provide
a minimum of 10 personnel to a moderate risk incident, 16 to a high risk incident, and 16 plus SORT
and MABAS resources to a special risk rescue incident.
Special rescue risk incidents have the potential to bring with them very complex problems which
would likely require the technical skill set of the departments special operations response team
(SORT). The SORT is activated anytime the department arrives at a confirmed trench, confined
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space, high angle or structural collapse rescue incident. The activation will trigger a response from
off duty personnel as SORT membership is spread across all three shifts. Should the incident exceed
the capability of the SORT, a request for the state’s urban search and rescue team could be made.
This team is located in both Cedar Rapids and Sioux City and would be requested through the county
emergency management coordinator.
All risk level classifications found on the following page are designed to match the risk with the
appropriate response force necessary to perform the mitigation actions called for by the specific
incident type. In other words, an Effective Response Force (ERF) must be assembled
(concentration of resources) within the proper timeframe to perform the needed actions (critical
tasks) to control the incident and prevent its further escalation.
Rescue Risk Level Classifications
The following risk level conclusions are established:
Low Removal from stuck elevators is the only incident that is considered low risk.
Moderate Rescues involving a motor vehicle accident (no entrapment) that did not involve
speeds over 45 mph, involve a rollover, a tractor trailer, a bus, or a train. Included
too are any rescues located on or near the city trail system.
High Rescue involving vehicle extrication with entrapment, a vehicle into a structure,
an industrial entrapment, or water/ice is considered high risk.
Special Rescue involving structural collapse, confined space entry, rope, high angle, or
trench collapse is considered special risk. Natural and man-made disasters are
considered Special Risk. Special risk incidents will cause the Special Operations
Rescue Team (SORT) to be activated.
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Rescue Critical Task Analysis
According to the CFAI, to create standard levels for response mitigation, an assessment must be
conducted locally to determine the capabilities of arriving companies and individual responders
to achieve critical tasks. When identifying critical tasks, responder safety must be a priority.
An ERF is the number of staff/tasks necessary to complete all of the identified tasks within a
prescribed timeframe. The following tables show critical tasks and associated risk with the ERF
for the incident.
Figure 108: Rescue ERF
Rescue Risk: Low
Critical Task Number of Staff
Command/Safety 1
Rescue Operations 2
TOTAL 3
Rescue Risk: Moderate
Critical Task Number of Staff
Command 1
Safety 1
Rescue Operations 3
Support Operations 3
Stabilization 1
Patient Care 1
TOTAL 10
Rescue Risk: High
Critical Task Number of Staff
Command 1
Safety 1
Attack Line 1
Pump Operations/Water Supply 1
Rescue Group Supervisor 1
Rescue Operations 2
Support Operations 6
Patient Management 1
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Hazard Control 2
TOTAL 16
Admin Chief (ICS) 1
Rescue Risk: Special
Critical Task Number of Staff
Command 1
Safety 1
Attack Line 1
Pump Operations/Water Supply 1
Rescue Group Supervisor 1
Rescue Operations 2
Support Operations 6
Patient Management 1
Hazard Control 2
TOTAL 16* + SORT + MABAS + USAR
Admin Chiefs (ICS) 2
* The total ERF will be higher depending on the number of off-duty SORT members that
respond to the callback. Additional support personnel will be requested via the Johnson County
Mutual Aid Box Alarm System (MABAS). Mutual Aid personnel have been trained by the
ICFD to support and provide assistance to the SORT.
Hazmat Risks
Hazardous materials and hazardous wastes are a concern for the city because a sudden accidental
or intentional release of such materials can be dangerous to human health and safety, damage
property, and affect the quality of the environment. The most likely occurrences of such releases
are in the following areas: transportation routes, business and industry, agriculture, and illegal
dumping.
All agency personnel are trained to the hazmat technicial level, as outlined in NFPA 472.
Agency apparatus are equiped with operations level equipment. Any incident that is beyond that
of defensive operations, requires the callout of the Johnson County Hazardous Materials
Response Team (JCHMRT). This team is comprised of agency personnel assigned to fire station
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2 as well as individuals sponsored by area volunteer fire departments, various departments within
Johnson County government, and area businesses with an interest in hazardous materials
response. Total team membership is 30 personnel. The team response apparatus, Hazmat 1, is
owned by the county but is stationed at Iowa City Fire Station 2. Hazmat 1 carries equipment
required for a technician level response.
Hazmat Critical Task Analysis
According to the CFAI, to create standard levels for response mitigation, an assessment must be
conducted locally to determine the capabilities of arriving companies and individual responders
to achieve critical tasks. When identifying critical tasks, responder safety must be a priority.
An ERF is the number of staff/tasks necessary to complete all identified tasks within a prescribed
timeframe. The following tables show critical tasks and associated risk with the ERF for the
incident.
191
HazMat Risk Level Classifications
The following risk level conclusions are established:
Low Incidents include investigations with carbon monoxide, natural gas or other
commonly encountered hazardous materials such as gasoline and anti-freeze. An
ERF of 3 personnel is necessary to complete the critical task assignments of low
risk HazMat incidents.
Moderate Incidents include HazMat spills and gas leaks to include methane and propane.
Incidents will include investigations inside a structure for hazardous materials.
An ERF of 13 personnel is necessary to complete the critical task assignments of
moderate risk HazMat incidents.
High Incidents include cases where a full team roll-out of the Johnson County
Hazardous Materials Response Team is required. Incidents include a large
quantity transportation accident release, an unknown chemical release from a lab,
or a chemical release at a manufacturing facility. An ERF of 16 personnel is
necessary to initiate the critical task assignments of high risk HazMat incidents.
Specific and detailed task assignments would be determined by the incident
commander or team leader.
Special Incidents include events requiring full team activation plus additional HazMat
specialists to initiate the critical task assignments associated with a special risk
HazMat incident. Special risk incidents include any large-scale HazMat event,
natural or manmade such as a train derailment, a dirty bomb or a WMD event.
An ERF of 22 personnel is necessary to initiate the critical task assignments. A
team roll-out of the Johnson County Hazardous Materials Team will be required
and requested via the Joint Emergency Communications Center (JECC).
Additional state resources such as the Iowa WMD team and 71st Civil Support
Team may be special called through Johnson County Emergency Management.
NOTE: The ICFD conducted a WMD type exercise that included both of these
specialty teams in the summer of 2012.
192
Figure 109: HAZMAT ERF
Hazmat Risk: Low
Critical Task Number of Staff
Command/Safety/Documentation 1
Investigation/Monitoring 2
TOTAL 3
Hazmat Risk: Moderate
Critical Task Number of Staff
Command 1
Safety 1
Documentation 1
Entry Team 2
Backup 2
Hazard Control 2
Pump Operator 1
Support/Decon 3
TOTAL 13
Hazmat Risk: High
Critical Task Number of Staff
Command 1
Safety 1
Documentation/Research 2
Hazmat Group Supervisor 1
Entry 2
Entry 2 2
Backup 2
Decon 2
Hazmat Support 3
TOTAL 16
Admin Chief (ICS) 1
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Hazmat Risk: Special
Critical Task Number of Staff
Command 1
Safety 1
Hazmat Group Supervisor 1
Documentation 1
Staging Manager 1
Entry 2
Entry 2 2
Backup 2
Decon 2
Research 2
General Hazmat Support 3
Technical Hazmat Support 4
TOTAL 22*
Admin Chiefs (ICS) 2
* Six (6) additional on-duty ICFD technician level personnel may be assigned to the incident. In
the event of a particularly difficult or complicated hazmat incident, the Johnson County Mutual
Aid Box Alarm System (MABAS) will be utilized to attain the same quantity of personnel and
apparatus as stated previously in the fire critical task analysis. Mutual aid companies are
certified as operations level providers in hazardous materials response and are qualified to assist
and support the ICFD in the performance of its duties.
All Hazard Disaster Response Assistance
In the event of a large-scale disaster, mutual aid assistance will be necessary to assemble an
effective response force capable of addressing the critical tasks necessary to control the event.
Immediate additional support personnel can be requested via the Johnson County Mutual Aid
Box Alarm System (MABAS). Additional support and assistance may be requested through the
Iowa Mutual Aid Compact (IMAC), an intrastate mutual aid agreement that provides the
mechanism for political subdivisions and emergency management commissions to share
resources with one another during a disaster that has been declared either by the local jurisdiction
or the governor. The Compact increases each member’s level of emergency preparedness,
194
allowing them to work as a team when disasters are beyond local capabilities. If additional
resources are required, Iowa Homeland Security and Emergency Management will work with
other states to provide resources through the national Emergency Management Assistance
Compact (EMAC).
Disaster Risks
Data on the past occurrences and future probabilities of hazards for the Johnson County planning
area are taken from: Iowa City Hazard Mitigation Plan, FEMA, and various articles and
publications. The Iowa City Hazard Mitigation Plan identified the following risks and calculated
probabilities of occurrences:
Non-Fire Risks
Earthquakes
Definition: A sudden, violent shaking or movement of part of the earth's surface caused by the
abrupt displacement of rock masses, usually within the upper 10 to 20 miles of the earth's
surface. Consequences of earthquakes may include fire, hazmat release, or dam failure, among
others. Many earthquakes occur in the United States, mainly along the Californian Fault and the
New Madrid Seismic Fault Zone. Even though most of the shakings are unnoticed by the
general public, severe quakes can and do occur. The New Madrid Seismic Zone is a 150 mile
long fault system which extends over five southern and Midwestern states. The New Madrid
Seismic Zone lies within the central Mississippi Valley, extending from northeast Arkansas,
through southeast Missouri, western Tennessee, and western Kentucky to southern Illinois. A
high intensity quake in the New Madrid Seismic Zone will have far more drastic consequences
as compared with West Coast earthquakes. The possibility of an earthquake in Iowa City is of
some concern, but is a low probability issue.
Potential hazards associated with earthquakes include:
Rupture of the ground surface by displacement along faults.
Shaking of the ground caused by passage of seismic waves through the earth.
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Ground failure induced by shaking, such as landslides, liquefaction, and subsidence of
unstable ground, with associated effects, including fire and disruption of utilities and
transportation routes.
Tsunamis, which occur in enclosed bodies of water, such as reservoirs or lakes.
A major earthquake would be expected to cause considerable damage to transportation systems.
Roads, bridges, and highways are susceptible to damage or failure.
The risk of an occurring earthquake in the area protected by the ICFD is extremely low; in case
of occurrence, the ICFD will use its existing response plans.
Figure 110: Comparison between the Western US Seismic Fault and the New Madrid Seismic Fault
Severe Thunderstorms
Every thunderstorm produces lightning. In the United States, an average of 300 people are
injured and 80 people are killed each year by lightning. Thunderstorms are common occurrences
during changing seasons, primarily from winter to spring and again from fall to winter. Other
associated dangers of thunderstorms include tornadoes, strong winds, hail, and flash flooding.
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Flash flooding is responsible for more fatalities—more than 140 annually—than any other
thunderstorm associated hazard. The ICFD recognizes the inherent dangers present during a
severe thunderstorm and has the capability of providing services for fire and medical
emergencies caused by severe weather. The department has backup generators to be used in case
of power failure.
Tornadoes
Definition: Tornadoes are violently rotating columns of air that descend from thunderstorms to
come in contact with the ground. Tornadoes develop from thunderstorms when the wind
variation with height supports rotation of the thunderstorm updraft.
Iowa City is located in tornado alley and within Wind Zone 4, the highest wind zone in the
country. According to NOAA records, Iowa City is in an area experiencing 20-30 significant
tornados per 100-year period, providing an average of one event every four years. For that
reason, the entire jurisdiction is at risk of experiencing a tornado or a wind storm. In April 2006,
a tornado with an EF2 magnitude hit Iowa City, causing $12 million in damage and injuries.
Iowa ranks sixth in the United States for tornado frequency. The Iowa City area’s historical
tornado activity is slightly above Iowa state average. It is 165 percent greater than the overall
U.S. average.
On June 7, 1984, a category 4 (maximum wind speeds 207-260 mph) tornado 17.6 miles away
from Iowa City killed three people, injured 64 people, with an estimated $5,000,000 to
$50,000,000 in damage. On April 30, 1954, a category 4 tornado hit 32.8 miles away from the
city.
Overall, there have been 29 tornados reported in Johnson County since 1950. These tornadoes
killed one person, injured 49 people, and caused $30,012 million in property damage. Severe
thunderstorms and tornadoes occur most often in Iowa during the spring months of March, April,
and May. A secondary tornado season occurs in the fall. Such thunderstorms may also generate
large hail and damaging winds. Tornadoes cause extensive property and crop damage, injuries,
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and even death. Iowa ranks sixth in the United States for tornado frequency, averaging 31
tornadoes each year.
On the evening of April 13, 2006, a severe storm consisting of large hail and tornadoes struck
Iowa City, causing severe property damage and displacing many from their homes, including
University of Iowa students. The storm left a path of destruction three and a half miles long and
a third of a mile wide. The National Weather Service reported five to six tornadoes in Johnson
County, two of which touched down in Iowa City. One of the tornadoes touching down in Iowa
City was classified as an EF-2 tornado, with winds over 150 miles per hour. It was the first
tornado recorded to directly hit Iowa City. No serious injuries were reported. Historically, only
15 percent of tornadoes occurring in Iowa were classified as EF-2.5
Figure 111: Path and Damage Amounts, Iowa City July 28, 2006
5 3EMA. Thunderstorms and Lightning. Available online at:
http://www.fema.gov/hazard/thunderstorm/index.shtm
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Hail
The national climatic data center reported 49 hail events for Johnson County between 1950 and
2005, with a total property and crop damage assessed at $41 million.
The ICFD has the capability of responding to adverse consequences of severe thunderstorms and
tornadoes. The ICFD can receive additional support from surrounding communities through the
established 28E Mutual Aid Agreement.
Floods
Forty flood events were reported in Johnson County, Iowa, between January 1, 1950, and
December 31, 2005, causing a reported $140 million in property damage and $27 million in crop
damage. Flooding along rivers is a natural and inevitable part of life. Iowa City is prone to
flooding, as the Iowa River crosses along the city. The city experienced a major flood in the
summer of 1993. In June 2008, the city also experienced a flood of record along the Iowa River,
which was near the 500-year flood per the FEMA Flood Insurance Study (FIS). Significant city
resources were expended to resist floodwaters from entering the critical city services, such as
water wells and wastewater treatment systems. Residences and businesses situated along and
within the floodwaters were supplied with flood-fighting equipment and labor. Cleanup and
removal of flood damaged items continued for several weeks after floodwaters receded. The
rebuilding/repair of flood damaged structures is currently in a variety of stages. The ICFD will
proceed with necessary action if flood situations arise and will continue to provide fire and
medical emergency services to the citizens to the best of its ability
The City of Iowa City is responsible for storm drainage within the city boundaries. One of the
storm water missions is to protect the community and its waterways through sound planning and
construction of storm water management projects, such as storm sewer and flood-prevention
capital improvements.
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Impact of Increased Urban Development
The frequency and severity of flooding has increased in recent years, partly as a result of
increasing urban development. As more land becomes covered with impermeable surfaces such
as buildings, parking lots, and roads, water cannot drain into the soil and surface runoff
increases, thereby causing acute local flooding.
Figure 112: Water Level and the Corresponding Flood Impact
Flood Hazard Areas
There are areas of residentially used floodplain on the east side of the Iowa River that extend
beyond the Iowa River. Ralston Creek, a central feature of the residential neighborhood located
29 Serious flood damage occurs at the University of Iowa campus.
Flood protection becomes necessary at the University of Iowa.
27 Water affects several industrial businesses and warehouses
along Commercial Drive.
26 Water floods county road bridge approaches along the river and
affects streets and parking lots along Commercial Drive.
25 Flooding occurs in Coralville. Water inundates the Cedar Rapids
and Iowa City rail line near Coralville.
23.5 Water affects the north Wastewater Treatment Plant.
Considerable flooding occurs at the University of Iowa.
Water floods Hancher Auditorium at the University of Iowa.
23 Flooding problems occur elsewhere on the University of Iowa
campus.
22 Urban flood damage occurs in Iowa City. Water enters homes
along Edgewater Drive.
Flooding occurs in homes near Taft Speedway in Iowa City.
21 Homes on east side of Quarry Road in Coralville require
protection. Edgewater Drive becomes impassable.
20.5 Water affects the north Wastewater Treatment Plant.
19 Lowland flooding occurs in the Iowa City Park area.
18 Rural flooding occurs along the river.
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between Court Street and Muscatine Avenue, runs through a large portion of town, and impacts a
number of neighborhoods, most of which were built in the second quarter of the 20th Century.
Figure 113: Residential Properties, Historic District, and FEMA 100-&ear Floodplain
The southeast district is bounded by Court Street on the north, Highway 6 on the south, and
extends from 1st Avenue and the Sycamore Mall area on the west to the city's growth area
boundary located just east of Taft Avenue. It contains a number of residential neighborhoods
with a mix of housing types, including single-family homes, townhomes, condominiums,
apartments, and elderly housing.
The southeast side of the city has seen new development over the past 20 years and a substantial
amount of this development has been multi-family. There are also a number of industrial
properties in this area. The majority of homes on the west side of the river are post WWII.
While Ralston Creek is viewed as an asset and an amenity for the Court Hill Neighborhood, it is
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also prone to flash flooding, particularly during heavy local rain events. Residents and business
owners with property along the creek should be aware of dangers posed by flooding, not only to
property, but to public safety.
Figure 114: 2008 Flood and FEMA Floodplain
Iowa City’s floodplain management ordinance, intended to discourage and restrict new
development in flood hazard areas, has been in place since 1977. However, in response to the
devastating floods of 1993 and 2008, the City re-examined these regulations and expanded the
definition of ― flood hazard‖ to include the ― 100-year‖ and ― 500-year‖ floodplains. Almost all
property along Ralston Creek in Court Hill Neighborhood is developed.
The City applied and received CDBG disaster recovery funds through the Iowa Department of
Economic Development (IDED) in 2009 and 2010 to replace some housing demolished and
converted to permanent green space.
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Iowa City Flood of 2008
The Ralston Creek watershed is located on the east side of Iowa City. Its southern and lower
branches are urbanized. The north branch sub-basin is largely agricultural, but has undergone
new development as Iowa City has continued to expand. Hickory Hill Park is located at the
downstream end of the north branch sub-basin and a bridge on Rochester Avenue that crosses the
creek constrains flood flows. The regional storm water detention basin for the north branch of
Ralston Creek is located in Hickory Hill Park. The south branch of Ralston Creek flows into the
regional storm water detention basin located east of Scott Boulevard in Scott Park. These
regional basins are able to serve most of the northeast district. Developers in this district are not
required to provide on-site storm water detention facilities, as long as sufficient capacity remains
within the two regional storm water basins. Although a 100-year storm water route needs to be
provided through each property, not having to provide storm water detention facilities on
individual properties allows for more compact development to occur within the district.
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Figure 115: Iowa City Zoning within FEMA 100-Year Floodplain and 2008 Flood Boundary
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Figure 116: Zones Flooded in 2008
Costs Associated with Flooding
Loss of service values are more often found with disruption of critical city facilities or utilities.
For example, the current FEMA standard value for the loss of electrical power is $126 per person
per day; the loss of potable water is $93 per person per day, and the loss of wastewater service is
$41 per person per day. Road closures that cause detours can also be calculated into the losses
avoided by undertaking the project; the current standard value for vehicle delay time is $38.15
per vehicle per hour and $0.55 per mile (Hazard Mitigation Planning Committee, 2009).
Floodplain Development Regulations Iowa City participates in the National Flood Insurance Plan (NFIP), and thus enforces all NFIP
regulations. Development in the floodplain can occur by permit only and the City enforces one
foot of freeboard. Floodplain permits are enforced by the City of Iowa City Housing &
Inspection Services Division. Additionally, some aspects of flooding are managed by the storm
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water management ordinance, which can prevent or reduce some of the damages associated with
flash flooding from improperly drained areas, blocked drainage ways and capacity issues.
Drought
Iowa’s current climate created the tall grass prairie habitat. The air systems coming up from the
Gulf of Mexico brought water to Iowa. There was enough moisture to help plants grow, but the
hot, dry winds from the west discouraged tree growth. Sometimes lightning caused fires; the
fires raced across hundreds of miles before reaching a river.
Iowa has a serious drought (long period of dry weather) about every ten years. Eight drought
events had been registered in Johnson County from 1950 to 2005, leading to a total crop damage
of $1.01 billion. Last year Iowa City has experienced an extreme drought category (D3-D4),
which may result in major crop or pasture losses; extreme fire risk, widespread water shortages,
or use restrictions may occur.
Figure 117: Drought Monitor, July 2012
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Figure 118: Drought Intensity and Consequences
D3 Extreme Drought Major crop or pasture losses; extreme fire danger; widespread water shortages or restrictions.
Palmer Drought Index -4.0 to -5.4
Standard Precipitation Index -1.6 to -1.9
Percent of Normal Precipitation is <60% for 6 months
Satellite Vegetative Health Index 6-15
CPC Soil Moisture Model 3-5%
USGS Weekly Stream flow 3-5%
D4
Exceptional Drought Exceptional and widespread crop or pasture losses;
exceptional fire risk; shortages of water in reservoirs, streams, and wells,
creating water emergencies.
Palmer Drought Index -5.5 or less
Standard Precipitation Index -2.0 or less
Percent of Normal Precipitation is < 60% for 12 months.
Satellite Vegetative Health Index 1-5
CPC Soil Moisture Model 0-2%
USGS Weekly Stream flow 0-2%
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Snow and Ice
Seventy-three snow and ice
events were reported in
Johnson County, Iowa,
between 1950 and 2005,
including freezing rain, ice
storms, heavy snow, and winter
storms. The City of Iowa City
Public Works Department has
an effective snow removal and
street maintenance program
when winter storms occur.
Precautions are taken when icy conditions exist.
Severe Weather Plan
The Severe Weather Plan is the principle source of documentation for the City’s emergency
operations activities in the event of a severe storm/tornado watch, warning, or lightning strike.
Almost every City department has the responsibility for developing and maintaining some part of
this plan. Each department with responsibilities in this plan have developed and maintained
written procedures for carrying out their assigned tasks.
Johnson County-Wide Multi-Hazard Emergency Operations Plan
The Johnson County-Wide Multi-Hazard Emergency Operations Plan establishes the policies,
guidelines, and procedures that will allow all the ICFD’s emergency resources to function
effectively, as a team, when disaster strikes.
Iowa City after Snow Storm
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The Iowa City Emergency Operations Plan
The primary purpose of this plan is to provide a basis for City of Iowa City emergency
operations. It is intended to assist key City officials and emergency organizations to carry out
their responsibilities for the protection of life and property under a wide range of emergency
conditions. The document serves to work as a building block to the Johnson County Wide
Emergency Operations Plan. Nothing here is intended as a replacement to that document.
The Iowa City Mass Evacuation Plan
Iowa City currently has a plan to provide for the orderly evacuation of all or any part of the
population, if it is determined that such action is the most effective means available for
protecting the population from the effects of an emergency situation. There are a wide variety of
emergency situations that might require an evacuation of portions of the local area:
Limited evacuation of specific geographic areas might be needed as a result of a
hazardous materials transportation accident, major fire, natural gas leak, tornado damage,
or localized flooding/flash flooding.
Large-scale evacuation could be required in the event of a major hazardous material spill,
terrorist attack with chemical agent, or extensive flooding.
In case an incident happened, the ICFD would be responsible for:
fire protection in the evacuated area
assisting in warning the public
assisting in evacuating the aged, the handicapped, and other special needs groups.
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The Iowa City Continuity of Operations Plan
The Continuity of Operations Plan (COOP) provides guidance for ICFD personnel to ensure the
organization maintains the capability to fulfill all of its assigned essential functions during all
contingencies. COOP planning is the effort to ensure the continued performance of essential
government functions during a wide range of potential emergencies. Whether the hazard is the
result of a natural or human-induced event, an ― all hazards‖ approach assures that, regardless of
the emergency, essential functions will continue. The Iowa City COOP plan was completed in
September of 2012.
Natural Hazard Risk Conclusion
Risk Assessment conclusion, in line with the Iowa City Hazard Mitigation Plan, lists
thunderstorm and lightning, hail storm, and winter storms as the highest probability hazards.
Tornadoes and Iowa River flooding were noted as hazards rated with the highest severity of
impact.
Risk Management Zones
As part of the community risk assessment, the ICFD conducted a thorough evaluation of the
community risks within each of Iowa City’s RMZs. All RMZs were individually evaluated on a
case-by-case basis. The assessment identified and located the maximum or worst, typical or
routine, and the remote or isolated fire and non-fire risk(s) in each RMZ (done pursuant to
Performance Indicator 2B.3 and 2C.3 of the CFAI FESSAM 8th Edition).
Maximum risks are hazards that require the most amounts of emergency resources, or that would
result in the greatest negative effect on the community. Examples include, but are not limited to,
the loss of life or property; damage to critical infrastructure, economic, historical or
environmental impact, etc. Typical or routine risks are those risks most common to an RMZ.
After the assessment was completed, risk level classifications and conclusions were made for
each RMZ.
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Risk Evaluation
The following seven unique risk evaluation factors were used as part of the assessment: Incident
History, Population Density, OVAP, At-Risk Populations, Property Value, Target Hazard, and
Local Considerations. Each risk evaluation factor received a risk rating based upon relevant raw
data.
Incident History (probability) was defined as the total number of fire, non-fire, and EMS
incidents which occurred in an RMZ. The rating is based on the number of incidents occurred in
an RMZ. RMZs were rated according to the following classes:
1 0-221
2 222-373
3 374-673
Population Density (probability) was identified as the total number of people occupying a one
square mile geographical area.
1 Rural (less than 1,000)
2 Suburban (1,000 – 1,999)
3 Urban (2,000 – 2,999)
3 Metropolitan (greater than 3,000)
OVAP (consequence) hazard designation was recognized in those occupancies within an RMZ
that had an assigned vulnerability assessment score. The total value score is calculated by
multiplying the number of structures in the RMZ by the average OVAP score of the RMZ.
1 Low OVAP occupancy value (less than 10,000) in the RMZ
2 Moderate OVAP occupancy value (10,000–25,000) in the RMZ
3 High OVAP occupancy value (26,000 or more) in the RMZ
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Figure 119: Total OVAP Value by RMZ
RMZ Average OVAP Number of Structures Total Value
1 22.42 1,470 41,996
4 22.55 1,822 41,090
5 23.32 2,314 53,978
6 24.61 761 18,725
11 23.78 1,002 23,834
12 21.77 784 17,072
13 22.21 1,470 32,655
14 22.44 1,731 38,835
15 21.75 1,217 26,471
16 24.19 871 21,070
17 24.87 1,612 40,083
18 23.1 2,896 66,876
21 31.46 677 21,293
23 23.94 861 20,608
104 29.75 224 6,663
105 22.82 1,017 23,213
At-Risk Populations (consequence) were defined as the total number of groups or subgroups that
are more likely to be exposed or more sensitive to certain fire, non-fire, and EMS risks than the
general population. At-Risk populations included, but were not limited to, older adults, children,
non-ambulatory, limited mobility, confined, and students.
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1 Low
2 Moderate
3 High
Residential Property Value (consequence) was based on the county appraisal. The higher the
residential property value, the higher the risk and community significance reflecting the loss.
1 Low (less than $200,000)
2 Moderate ($200,000-$350,000)
3 High (greater than $350,000)
Target Hazards (consequence) were identified as facilities or features in which there exists a
great potential for the loss of life and/or property. The more target hazards present in an RMZ,
the greater the potential for significant consequences. Target hazards included, but were not
limited to: malls, hospitals, schools, universities, jails, transportation network, hazmat, nursing
homes, retirement communities, Section 8 housing, movie theaters, government buildings,
hotels/motels, places of worship, industrial/manufacturing, high-density housing/apartments, and
activity centers/sporting complexes.
1 Low
2 Moderate
3 High
Local Considerations (consequence) were included in this study in order to more accurately
portray the actual risk levels within each RMZ that might not have been captured using the other
six probability and vulnerability factors (incident frequency, population density, OVAP, property
values, etc.). Local considerations included, but were not limited to: topography (water, terrain,
undeveloped areas, elevation); critical infrastructure (utilities, vital transportation, ECC, etc.),
threats (water plant, FAA’s Air Route Traffic Control Center, etc.), historical significance,
economic impact, and political impact.
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1 Low
2 Moderate
3 High
Risk Level Classifications and Conclusions
Within every RMZ, each of the seven unique risk evaluation factors were analyzed and given the
most appropriate risk rating. The risk ratings consisted of a standardized numerical value of one
(1), two (2), or three (3).
Within every RMZ, each of the seven factor ratings were aggregated and assigned a
comprehensive risk level classification specific for the respective grid. The aggregate risk level
classifications were assembled and classified into one of the following risk level categories:
Low, Moderate, or High.
Low: 12
Moderate: 13-16
High: 17-21
RMZs risk classification conclusions, as noted in the chart below, are that one RMZ is Low risk,
seven are of Moderate risk, and eight are High risk. Nearly 94 percent of the community’s
RMZs are classified as a moderate risk or higher.
Five out of the eight High risk RMZs are with metropolitan population densities. Five of the
seven Moderate risk RMZs also have metropolitan population densities. The ICFD concluded
that higher population densities directly relate to higher risk.
The following table illustrates the systematic, risk evaluation process, and risk level
classifications:
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Figure 120: Risk Level Classification by RMZ
EMERGENCY SERVICE ZONE - RISK FACTORS AND
RATINGS
RMZ
Probability Consequence
Total Risk Level Incident
History
Population
Density
OVAP
Value
At Risk
Population
Residential
Property
Value
Target
Hazards
Local
Considerations
1 2 1 3 3 1 3 3 16 Moderate
4 3 1 3 3 3 3 3 19 High
5 1 3 3 3 3 1 2 16 Moderate
6 1 3 2 2 3 3 2 16 Moderate
11 2 3 2 1 3 3 3 17 High
12 1 3 2 2 2 3 3 16 Moderate
13 1 3 3 2 2 3 2 16 Moderate
14 2 3 3 3 2 2 1 16 Moderate
15 1 3 3 2 2 3 3 17 High
16 3 3 2 1 3 3 3 18 High
17 3 2 3 2 3 3 3 19 High
18 3 3 3 3 3 3 2 20 High
21 3 3 2 1 3 3 3 18 High
23 2 3 2 2 3 3 3 18 High
104 1 3 1 3 3 3 2 16 Moderate
105 2 1 2 3 2 1 1 12 Low
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Figure 121: RMZs Risk Level
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E. HISTORICAL PERSPECTIVE AND SUMMARY OF SYSTEM PERFORMANCE
A review of historical perspective and the measurement of the ICFD’s current service delivery
system, in relation to response times, community response history, distribution, concentration,
reliability, comparability, and baseline performance are an essential part of the process to
determine how resources may be used more efficiently and effectively.
In this section, the quality of the community’s distribution network will be viewed within a
historical context using data from the past five years obtained from department incident reports
and the Firehouse record management system. The distribution network includes department
apparatus responding from their respective fire stations within the city, as well as apparatus from
neighboring jurisdictions responding as part of automatic (or mutual) aid.
E. Historical Perspective
and Summary of System Performance
Relationship to Response Times
Community Response History
Distribution
Concentration
Reliability
Comparability
Baseline Performance
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Relationship between Fire Behavior and Response Times
The stage of a fire affects staffing and equipment needs. Both can be reasonably predicted for
different risk levels and fire stages. The ability to correlate fire staffing and equipment is the
basis for a response coverage study for the ICFD. The fire suppression tasks that are required at
a typical fire scene vary a great deal depending upon risk level. What the fire companies must
do—simultaneously and quickly, if they are to save lives and limit property damage—is to arrive
at the right time, with adequate resources to do the job. Matching the arrival of resources with a
specific point of fire growth or number of patients found is one of the greatest challenges to fire
managers. Regardless of the speed of growth or length of burn time, all fires go through the
same stages of growth.
In order to save lives and minimize property damage, fire suppression units must arrive within an
appropriate timeframe and possess the adequate resources needed to accomplish critical tasks.
An important yet common reference point in these terms is the phenomenon of flashover.
Flashover is the point in fire growth where the contents of an entire area reach their ignition
temperature, resulting in an eruption of heat, smoke, and pressure capable of extending the fire
far beyond the area of origin. More importantly, this fire stage is untenable for firefighters and
especially for potential survivors, with grave consequences for anyone found within this
environment. Ideally, fire suppression forces should be on-scene and attacking the fire prior to
the point of flashover.
Flashover is the point at or before which it is desirable to have fire companies arrive on-scene.
When flashover occurs, everything in the room instantaneously erupts into flame. This eruption
into flame generates a tremendous amount of heat, smoke, and pressure, resulting in enough
force to extend the fire beyond the room of origin through doors and windows or breaches in
walls. The combustion process then speeds up because it has an even greater amount of heat to
transfer to unburned objects through convection, radiation, direct flame contact, and conduction.
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Flashover is a critical stage of fire growth for two reasons:
No living thing in the room of origin will survive, so the chances of saving lives drop
dramatically.
A greater amount of resources (equipment and personnel) are required to handle and
extinguish the fire.
A post flashover fire will burn hotter and move significantly faster, compounding the search and
rescue problems in the remainder of the structure at the same time that more firefighters are
needed for fire attack and extinguishment. Flashover normally occurs from four to ten minutes
after free burning begins.
Studies show that flashover occurs between 4-10 minutes after the beginning of the free burning
stage of fire growth. During this stage, fire growth occurs rapidly. This rapid growth
emphasizes the importance of early notification (activation of 911) and ICFD intervention at the
scene of the incident to help avoid this potentially deadly fire stage. The following flashover
graphic illustrates the relationship between the physics of fire and the time directly manageable
by a fire department.
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Figure 122: Time vs. Products of Combustion
In summary, the products of combustion, and the stage of a fire directly impacts staffing and
equipment needs. The time it takes to detect and report a fire can be positively influenced by a
mitigation source, such as an automatic alarm system. Additionally, the early suppression of
fires by automatic sprinkler systems can significantly affect the outcome of a fire. However, if
neither of these mitigation sources is present, firefighters must arrive to the scene of a fire within
an appropriate timeframe, which allows for emergency interventions including occupant rescue,
the application of water, etc. Emergency interventions prior to flashover will have the most
beneficial results. New data may indicate that time to flashover potentially is shorter than noted
in the previous graphic.
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Relationship between Cardiac Arrest and Response Times
Effective Emergency Medical Services (EMS) deployment also emphasizes on-scene
performance goals to improve patient outcomes. Patients in cardiac arrest represent one of the
most emergent situations found in the field. The American Heart Association (AHA) has
determined that brain damage will likely occur within four minutes of the body being deprived of
oxygen, due to a lack of perfusion and that damage will be irreversible after ten minutes without
intervention. County protocols provide for interventions that would include early Cardio
Pulmonary Resuscitation (CPR), or if indicated, CPR, and electrical defibrillation. Patients
receiving no such interventions within ten minutes typically experience ― brain death,‖ with
survival rates near zero percent, as illustrated in the Time vs. Defibrillation Success graphic.
Figure 123: Time vs. Defibrillation Success
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Community Response History
Time and on-scene performance measures are an indication of overall system performance by
showing how resources are used in an effective and efficient manner. It is essential to
understand the current performance of the delivery system in order to conduct analysis leading to
possible changes in the system. Response time goals should be looked at in terms of total reflex
time, which would include call processing time, turnout time, and travel time.
Cascade of Events
The individual time points and elements of an emergency event (house fire, cardiac arrest, etc.)
are critical to the department’s ability to positively impact the outcome. Fire growth is
exponentially based upon concentration of fuels, elapsed time to intervention, atmospheric
conditions, etc. Similarly, in medical emergencies - especially in terminal events such as cardiac
arrest - the elapsed time to effective intervention has a direct relationship in determining
survivability and ultimately quality of life. The cascade of events is the sum of these time points
and elements. The cascade of events is sequential and flowing.
The elements and time points of the cascade of events are: State of Community and Emergency
Responder Normalcy, Emergency Event Initiation, Emergency Event, Alarm, Alarm Processing,
Notification, Turn-out Time, Travel time, On-scene time, Initiation of Action, Termination of
Incident, and Total Response time.
The following discusses the cascade of events:
The state of community and emergency responder normalcy (status quo) is simply the time
where conditions are routine or without the need for help. The point at which factors occur that
ultimately result in the activation of the emergency response system is emergency event
initiation. Precipitating factors may occur in seconds, minutes, hours, or even days before a
point of awareness is reached. An example may be that of a person who ignores a feeling of
chest pressure for days before a critical point is reached (point of awareness) and a decision is
made to seek help. The quantification or capture of the emergency event initiation point is rare -
this point is considered soft data.
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Emergency event is the point where an awareness of conditions exist that requires an activation
of the emergency response system - this is also called the point of awareness. The point of
awareness may be the recognition by a person that help is needed. Or, the point of awareness
may be the mechanical or electronic recognition, such as a smoke alarm or fire sprinkler
activation. - this point is considered soft data.
The point at which the emergency response system becomes activated is the alarm. The alarm is
a signal or message from a person or device indicating the existence of an emergency or other
situation that requires help from emergency responders. A 911 emergency call (person) or
transmittal of a local alarm (device) to a Public Safety Answering Point (PSAP) are additional
examples of this time point. A PSAP is a facility or center where 911 calls are answered. - this
point is considered soft qualitative data.
Notification is the point when an alarm is received and acknowledged at a 911 center - this point
is hard quantifiable data.
Alarm handling is the time interval from when an alarm is acknowledged at a 911 center to the
time information is transmitted to emergency responders - this is hard quantifiable data.
The time interval that starts when notification of emergency responders begins and ends at the
point when responders start to travel is called turnout time - this is hard quantifiable data.
Travel time is the interval that begins when an emergency response unit (fire truck, etc.) is en
route to the emergency and ends when the unit arrives at the scene - this is also hard quantifiable
data.
On-scene time is the point when emergency responders arrive at the scene or location of the
emergency - on-scene time is hard quantifiable data.
The initiation of action is generally soft qualitative data. Initiation of action starts when the first
emergency unit arrives and ends when emergency mitigation (interventions) starts.
The time point at which responders have completed the emergency assignment and are available
to answer other calls for service is the termination of incident.
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Total response time is the interval from when the alarm is received at the PSAP to when the first
emergency responders initiate action or intervene to control the incident.
Knowing the elements and time points that make-up the cascade of events is important to better
understand the complexity of emergency service delivery - the delivery of service is dynamic.
Figure 124: Cascade of Events for Emergency Services
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Distribution Benchmark Statement
For 90 percent of all incidents, the first due unit shall arrive within 6 minutes 20 seconds of
total response time in Metro/Urban Risk Management Zones (RMZs) and within 7 minutes
20 seconds of total response time in Suburban RMZs. The first due unit shall be capable of
advancing the first line for fire control, starting rescue when a life hazard is present, or
providing basic life support with defibrillation for medical incidents.
Fire Administration will continue to focus on the call handling, turnout, and travel times in an
effort to reduce the total response time. Fire Administration’s goal is to have a call processed in
less than one minute, turnout time of less than 80 seconds, and a travel time of less than four
minutes on 90 percent of all incidents. Fire Administration will rely on the continuous
improvement model to obtain performance improvement in call handling and turnout. Strategies
and tactics currently employed include: report notifications on out-of-range incidents to provide
real-time feedback, count-up clocks to facilitate performance monitoring that are located at or
near the apparatus exit doors, quarterly reports by unit and by shift to identify solutions and/or
weaknesses and to encourage communication and feedback. Goals and compliance
measurements are routinely communicated to staff and improved fire station design was
employed with the construction of our last fire station to facilitate rapid turnout. Call handling
times are improving incrementally and efforts to streamline that process include the addition of a
horizontal PSAP and regular quality assurance reviews along with clear and concise dispatch
protocols. Stability in leadership positions at the communication center has been an ongoing
issue. Dispatchers are now dispatching response units while the call taker is still taking
information. The CAD vendor is consulted on a regular basis to explore and provide software
efficiencies.
Distribution of the stations and resources is needed to assure rapid first due response deployment
in order to minimize and successfully intervene at emergencies. Distribution is measured by the
percent of the jurisdiction covered by the first due units within adopted public policy. The ICFD
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has utilized brain death and flashover as benchmarks when determining distribution of units,
specifically to arrive before brain death on an EMS call, and prior to flashover for a fire call.
Currently, the ICFD operates out of four fire stations, each containing an engine company or a
quint company staffed with a minimum of three personnel, running first due in each district. In
addition, Station 1 contains a truck company with a minimum of three personnel, and a Battalion
Chief. Station 4 houses the cross-staffed rescue apparatus.
Concentration Benchmark Statement
For 90 percent of maximum risk areas, an Effective Response Force (ERF) shall arrive
within 10 minutes 20 seconds total response time within Metro/Urban RMZs and within 12
minutes 20 seconds in Suburban RMZs and be able to provide 1,500 GPM for firefighting,
or handle a three-patient emergency medical incident.
Concentration addresses the spacing of multiple resources arranged (close enough together) so
that an initial ERF can be assembled on-scene within sufficient timeframes. An initial ERF is
that which will most likely stop the escalation of an emergency in a specific risk type. Such an
initial response may stop the escalation of an emergency, even in maximum risk areas.
However, an initial ERF is not necessarily the total number of units or personnel needed if an
emergency escalates to its maximum potential. For example, if a building is preplanned for a
worst case fire flow of 4,000 GPM, it is possible that the jurisdiction plans an initial ERF to
provide the resources necessary (ex. 1,500 GPM) to contain the fire to a reasonably sized
compartment of origin. Additional alarms or units could be planned on from further away,
including mutual aid. In determining concentration, the ICFD has again looked at risk
assessment, call volume, population, and critical tasking. Future needs are identified in the
Strategic Plan and the Capital Improvement Plan (CIP).
The effective service area of each fire station is described as the area that is accessible by fire
units within four minutes travel time. The department takes into account factors such as street
patterns, terrain, and traffic arrangement of fire stations, which impact response and station
location. Efforts are continually made to shorten time in each of the steps. Fire Administration
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anticipates the CAD and Mobile Data Computer (MDC) systems will help identify response time
deficiencies and better manage and/or condense response time components.
A distribution study is merely one of several dimensions which can be utilized to view system
performance history. The four-minute travel time map identifies several weak areas with regard
to the ICFD’s static distribution network. Many areas depicted in white on the map below are
not fully developed in terms of road network or the number of structures present. The areas
consistently have rural population densities and low community risk level classifications.
However, there are significant portions that fall into high and moderate risk RMZs, especially
RMZ 4, 13, and 105. These findings call for re-evaluation of the static distribution and/or
addition of stations to fill the gaps.
Concentration Study of Resources
According to CFAI, concentration is the spacing of multiple resources arranged close enough
together so that an ERF can be assembled on-scene within adopted public policy timeframes.
Simply stated, resources should be located throughout the community so that the needs of an
emergency incident are met in a timely fashion. Also, concentration of resources may vary since
an increased risk potential or population density may equal an amplified need for the spacing of
resources.
For the purposes of this concentration study, the following factors were examined to determine
availability of the ICFD’s concentration of resources: ERF, incident data (responses) by RMZ,
and incident data (responses) by station.
Typically, high and special risk incidents require a larger ERF to successfully mitigate an
emergency.
In summary, the appropriate department and mutual aid resources are dispatched either
automatically or by request in accordance with the county-wide response matrix and the Johnson
County Mutual Aid Box Alarm System (MABAS), which coincides with critical tasking and the
related ERF. The tables and charts that follow show incident responses (all incident types) and
travel time performance by station for 2012:
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The data analysis concludes a direct relationship to community service demand and higher
population density RMZs. Simply stated, service demand is peak for the areas where people are
concentrated.
Furthermore, station response area map (four-minute travel time) exhibit adequate coverage to
most of the service demand. However, noteworthy overlap of some station response areas is
observed and there are low service demand areas and low population density RMZs outside of
the four-minute travel time. Consideration should be given to improve resource (station)
concentration (location), especially in District 4 and District 2, where the department faces its
longest travel times. Consideration also must be given to the future growth of the city (refer to
the growth boundary map below) and the correlating impact upon population density.
Community Service Level Benchmark Objectives
FIRE
Objective: For all fire incidents, the Iowa City Fire Department shall arrive in a timely manner
with sufficient resources to stop the escalation of the fire and keep the fire to the area of
involvement upon arrival. Initial response resources shall be capable of containing the fire,
rescuing at-risk victims, and performing salvage operations, while providing for the safety of the
responders and general public.
Distribution Performance Measure for Fire – All: The first engine (or truck or quint with
engine capabilities) staffed with a minimum of three personnel shall arrive within 6
minutes 20 seconds total response time in metropolitan and urban population areas; 7
minutes 20 seconds total response time in suburban population areas, for 90% of all
requests for emergency service.
Concentration Performance Measure for Fire – Low: See Distribution Performance
Measure.
Concentration Performance Measure for Fire – Moderate (Unconfirmed): The second
and third due engine (or truck or quint with engine capabilities) staffed with a minimum
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of six personnel and the battalion chief shall arrive within 10 minutes 20 seconds total
response time in metropolitan and urban population areas; 12 minutes 20 seconds total
response time in suburban population areas, to have a minimum of 10 personnel on scene
for 90 percent of all requests for emergency services. The department will not enter an
IDLH environment until the arrival of minimal personnel to meet critical tasking objectives.
Concentration Performance Measure for Fire – Moderate (Confirmed): The second,
third, and fourth due engine (or truck or quint with engine capabilities) staffed with a
minimum of nine personnel and the battalion chief shall arrive within 10 minutes 20
seconds total response time in metropolitan and urban population areas; 12 minutes 20
seconds total response time in suburban population areas, to have a minimum of 13
personnel on scene for 90 percent of all requests for emergency services.
Concentration Performance Measure for Fire – High: The second through fifth due units
staffed with a minimum of 12 personnel and the battalion chief shall arrive within 10
minutes 20 seconds total response time in metropolitan and urban population areas; 12
minutes 20 seconds total response time in suburban population areas, to have a minimum
of 16 personnel on scene for 90 percent of all requests for emergency services.
Concentration Performance Measure for Fire – Special: To the resources identified in
high risk response add the preplanned mutual aid resources available through the Johnson
County Mutual Aid Box Alarm System (MABAS). Iowa City’s four fire districts are
divided into 12 boxes. Each box can escalate, depending upon the needs of the incident
commander’s incident action plan to a 5th alarm, with each alarm bringing additional
apparatus and personnel. Mutual aid resources will be necessary to assemble an effective
response force capable of addressing the critical tasks necessary to control a special risk
event.
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EMS
Objective: For all emergency medical incidents, the Iowa City Fire Department shall arrive in a
timely manner with sufficiently trained and equipped personnel to provide medical services that
will stabilize the situation, provide care and support to the victim and reduce, reverse, or
eliminate the conditions that have caused the emergency while providing for the safety of the
responders. Timely transportation of victim to appropriate medical facilities shall be
accomplished in an effective and efficient manner when warranted.
Distribution Performance Measure for EMS – All: The first unit (with BLS capabilities)
staffed with a minimum of three personnel shall arrive within six minutes total response
time in metropolitan and urban population areas; seven minutes total response time in
suburban population areas, for 90% of all requests for emergency service.
Concentration Performance Measure for EMS – Low and Moderate: Same as
Distribution Performance Measure.
Concentration Performance Measure for EMS – High: The second and third unit with
BLS capabilities staffed with a minimum of six personnel and the battalion chief shall
arrive within 10 minutes total response time in metropolitan and urban population areas;
12 minutes total response time in suburban population areas, to have a minimum of 10
personnel on scene for 90 percent of all requests for emergency service.
Concentration Performance Measure for EMS – Special: The second through fifth due units
staffed with a minimum of 12 personnel and the battalion chief shall arrive within 10 minutes
total response time in metropolitan and urban population areas; 12 minutes total response time in
suburban population areas, to have a minimum of 16 personnel on scene for 90 percent of all
requests for emergency services. Mutual aid resources may be necessary to assemble an
effective response force capable of addressing the critical tasks necessary to control a special risk
event. Preplanned mutual aid resources are available through the Johnson County Mutual Aid
Box Alarm System (MABAS).
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RESCUE
Objective: For all incidents where rescue of victims is required, the Iowa City Fire Department
shall arrive in a timely manner with sufficient resources to stabilize the situation and extricate
the victim(s) from the emergency situation or location without causing further harm to the
victim, responders, public or the environment.
Distribution Performance Measure for Rescue – All: The first unit (engine, truck, quint,
or rescue) staffed with a minimum of three personnel shall arrive within six minutes
twenty seconds total response time in metropolitan and urban population areas; seven
minutes twenty seconds total response time in suburban population areas, for 90% of all
requests for emergency service.
Concentration Performance Measure for Rescue – Low: Same as distribution
performance measure.
Concentration Performance Measure for Rescue – Moderate: The second and third due
engine, truck, rescue or quint staffed with a minimum of six personnel and the battalion
chief shall arrive within 10 minutes 20 seconds total response time in metropolitan and
urban population areas; 12 minutes 20 seconds total response time in suburban population
areas, to have a minimum of 10 personnel on scene for 90 percent of all requests for
emergency services.
Concentration Performance Measure for Rescue – High: The second through fifth due
units staffed with a minimum of 12 personnel and the battalion chief shall arrive within
10 minutes 20 seconds total response time in metropolitan and urban population areas; 12
minutes 20 seconds total response time in suburban population areas, to have a minimum
of 16 personnel on scene for 90 percent of all requests for emergency services.
Concentration Performance Measure for Rescue – Special: To the resources identified in high
risk response add the preplanned mutual aid resources available through the Johnson County
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Mutual Aid Box Alarm System (MABAS). A call-back of off-duty Special Operations Rescue
Technicians (SORT) will bring added staffing. One or both groups may be necessary to provide
an effective response force capable of addressing the critical tasks necessary to control a special
risk event.
HAZARDOUS MATERIALS
Objective: For all incidents where hazards involving hazardous materials are involved, the
Iowa City Fire Department shall arrive in a timely manner with sufficient resources to stabilize
the situation, stop the escalation of the incident, contain the hazard where applicable, and
establish an action plan for the successful conclusion of the incident without causing further
harm while providing for the safety and security of the responders, public, and the environment.
Distribution Performance Measure for Hazardous Materials – All: The first unit (engine,
truck, quint, or rescue) staffed with a minimum of three personnel shall arrive within six
minutes 20 seconds total response time in metropolitan and urban population areas; seven
minutes 20 seconds total response time in suburban population areas, for 90% of all
requests for emergency service.
Concentration Performance Measure for Hazardous Materials – Low: Same as
distribution performance measure.
Concentration Performance Measure for Hazardous Materials – Moderate: The second,
third, and fourth units staffed with a minimum of nine personnel and the battalion chief
shall arrive within 10 minutes 20 seconds total response time in metropolitan and urban
population areas; 12 minutes 20 seconds total response time in suburban population
areas, to have a minimum of 13 personnel on scene for 90 percent of all requests for
emergency service.
Concentration Performance Measure for Hazardous Materials – High: The second, third,
fourth and fifth unit staffed with a minimum of twelve personnel and the battalion chief
232
shall arrive within 10 minutes 20 seconds total response time in metropolitan and urban
population areas; 12 minutes 20 seconds total response time in suburban population
areas, to have a minimum of 16 personnel on scene for 90 percent of all requests for
emergency service.
Concentration Performance Measure for Hazardous Materials – Special: To the
resources identified in high risk response add a full team call-out of the Johnson County
Hazardous Materials Response Team (JCHMRT). The preplanned mutual aid resources
available through the Johnson County Mutual Aid Box Alarm System (MABAS) may
also be added. The JCHMRT will be necessary to assemble an effective response force
capable of addressing the critical tasks necessary to control a special risk event.
Comparability Study
A method of measuring system performance is that of comparability. Comparability may be
done in different ways. A common practice is to use industry standards such as NFPA,
Insurance Services Office, etc. Another method is to use industry best practices that have been
validated by organizations dedicated to continuous improvement, such as CFAI. Internal
comparison of system performance is also a method to capture comparability.
An internal comparison is conducted in the summer and spring planning meetings. The meeting
report monitors the department’s performance. The report addresses the department’s
emergency service and administrative (budget, health and safety, fire marshal, evaluations,
training, reports, etc.) items. The report also illustrates emergency service items related to
turnout, travel time, and total response time (average and 90th percentile) across all three shifts
and by month.
Baseline Performance
Understanding the historical measure of today’s (baseline) performance is critical when
assessing the emergency service delivery system. An integral portion of the performance
assessment is accurate response data.
233
Methodology of Response Data Gathering and Analysis
A records management system (Firehouse Software) was utilized to gather accurate raw response
data, with further calculations performed to arrive at the end results seen in the following data
charts. Initially, a query was built to capture all fire, EMS, rescue, and hazmat responses within
the city limits (mutual/automatic aid responses outside the city excluded) from the year 2008
through 2012. All data was exported to (and all response analysis calculations were done
through) Microsoft Excel Macro. Due to special data accuracy issues about 6 percent of the data
were excluded to make sure that the data is indeed representative to our performance outcomes.
We believe the excluded outliers are outcome of technology failure, mis-entered data, or extreme
weather conditions. For example, a significant portion of these data points had zero alarm
handling time.
Raw response data was pulled for every response unit that responded to an emergency incident
(excluding units canceled prior to arrival) and included the following:
Incident Type
Unit Identifier
Unit Arrival Sequence
Date/Time of: Call in Queue, Alarm, Notification, Roll, Arrival, Clear
Location (RMZ) of Incident
Year of Incident (filter)
Fire Station District of Incident
The following calculations were performed using raw response data gathered utilizing the criteria
listed above:
Unit Count (total number of units per incident)
Alarm Handling Time (Alarm Date/Time minus Call in Queue Date/Time)
Turnout Time (Roll Date/Time minus Notification Date/Time)
Travel Time (Arrival Date/Time minus Roll Date/Time)
Total Response Time (Arrival Date/Time minus Call in Queue Date/Time)
Turnout and Arrival Sequencing (order sorting of unit’s turnout and arrival)
Effective Response Force (last unit arrival from first alarm assignment)
234
Data analysis was completed using Microsoft Excel reports and Firehouse Analytics, which
allowed the viewing of data by categories based on: specific years, years and service delivery
areas, and years and RMZs. Filtering methods used were: apparatus and turnout sequencing and
ERF. The Microsoft Excel reports were used in such a manner that allowed quick
summarization of incident counts, analysis of the first arriving unit, and ERF response
performance.
Baseline System Performance
The following data tables are representative of the ICFD’s 2008-2012 baseline (actual) system
performance for alarm handling time, turnout time, travel time, and total response time for all
Code 3 (emergency) incidents that transpired within Iowa City’s city limits for each service type
(fire, EMS, technical rescue, and hazmat). The 2008-2012 data was analyzed according to
service type, risk classification, and population density. The data was measured to the 90th
percentile for each individual year and then aggregated to show the 90th percentile measurement
for all five years from 2008-2012.
Fire Suppression Baseline Performance
Low risk fire suppression incidents include grass fires, trash/rubbish fires, and passenger vehicle
fires. An ERF of three personnel is necessary to complete the critical task assignments of low
risk fire incidents. For most low risk fire suppression incidents, the ERF is the same as the first
arriving unit.
Moderate risk fire suppression incidents included single family dwelling fires, appliance fires,
flue/chimney fires, outbuilding fires, and transport vehicle fires. An ERF of ten personnel is
necessary to complete the critical task assignments of moderate risk fire incidents. In cases
where a working fire is confirmed, the minimum ERF is 13 personnel.
High risk fire suppression incidents included fires in multi-family dwellings, commercial
structures, and light manufacturing. An ERF of 16 personnel is minimally required to complete
the critical task assignments of high risk fire incidents.
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Figure 125: Fire Baseline Performance
STRUCTURE FIRE: Type 111-118
Metro / Urban
Suburban
90% Data 90% Data
Fractal Set Fractal Set
2008
1:09 45
1:46 11
2009
1:09 31
1:01 14
Alarm Pick-up to Dispatch 2010
2:12 45
1:48 22
Handling 2011
2:03 41
2:24 16
2012
2:08 49
1:52 18
2008-12
1:43 211
1:51 81
Baseline
1:43
1:51
2008
2:17 45
2:41 11
2009
2:11 31
2:27 14
Turnout Turnout Time 1st
Unit
2010
2:13 45
2:40 22
Time 2011
2:09 41
2:10 16
2012
1:55 49
2:08 18
2008-12
2:07 211
2:26 81
Baseline
2:07
2:26
2008
3:55 45
5:38 11
2009
4:22 31
5:42 14
Travel Time 1st Unit 2010
3:50 45
5:28 22
Distribution 2011
4:26 41
4:57 16
2012
3:43 49
4:46 18
2008-12
4:07 211
5:05 81
Baseline
4:01
5:05
2008
8:12 36
7:51 10
2009
7:16 14
8:55 13
Travel
Travel Time ERF
(Moderate) 2010
7:10 32
8:35 20
Time UNCONFIRMED 2011
7:40 28
9:31 15
Concentration 2012
8:04 35
7:12 17
2008-12
7:40 145
8:35 75
Baseline
7:40
8:35
2008
6:44 6
18:48 1
2009
13:25 8
18:20 7
Travel Time ERF
(Moderate) 2010
7:10 4
13:19 6
CONFIRMED 2011
9:04 7
14:45 4
Concentration 2012
6:59 5
9:26 6
2008-12
8:14 30
14:45 24
Baseline
8:14
14:45
236
2008
6:34 45
8:36 11
2009
6:23 31
8:03 14
Total
Total Response Time 1st
Unit 2010
6:29 45
8:25 22
Response Distribution 2011
7:33 41
7:24 16
Time 2012
6:41 50
7:56 18
2008-12
6:36 211
8:09 81
Baseline
6:36
8:09
2008
11:07 36
12:05 10
2009
10:06 14
13:12 13
TRT ERF (Moderate) 2010
10:33 32
12:54 20
UNCONFIRMED 2011
13:14 28
14:15 15
Concentration 2012
10:57 35
10:32 17
Total
2008-12
10:45 145
12:54 75
Response
Baseline
10:45
12:54
Time
2008
11:55 6
23:05 1
2009
21:09 8
25:17 7
TRT ERF (Moderate) 2010
14:52 4
21:35 6
CONFIRMED 2011
17:44 7
17:28 4
Concentration 2012
15:46 5
16:45 6
2008-12
16:14 30
21:35 24
Baseline
16:14
21:35
ERF [Low Risk] = 3 Personnel
Metro RMZs: 5, 6, 11, 12, 13,
14, 15, 16, 21, and 23
ERF [Moderate/Unconfirmed] = 10 Personnel
Urban RMZ: 18
ERF [Moderate/Confirmed Risk] = 13 Personnel
Suburban RMZ: 1, 4, 17, 104,
ERF [High Risk] = 16 Personnel
and 105
ERF [Special Risk] = 16 Personnel + MABAS
Travel time
Effective Response Force
Moderate Risk
METRO/URBAN 1st Unit
Unconfirmed
Confirmed
Benchmark 4:00
8:00
8:00
Baseline 4:01
7:40
8:14
SUBURBAN
Benchmark 5:00
10:00
10:00
Baseline 5:05
8:35
14:45
237
EMS Baseline Performance for 2008-2012
EMS incidents included all emergency EMS calls, illness (medical), or injury (trauma) related.
Figure 126: Emergency Medical Service Baseline Performance
Metro / Urban
Suburban
EMS: Types 311, 321, 322, 323 90% Data 90% Data
Fractal Set Fractal Set
2008 1:44 1494 1:37 632
2009 1:29 1530 1:33 592
Alarm Pick-up to Dispatch 2010 2:08 1598 2:04 695
Handling 2011 2:13 1654 2:14 784
2012 2:10 1845 2:09 892
2008-12 1:55 8121 1:48 3595
Baseline 1:55 1:48
2008 2:21 1494 2:32 632
2009 2:19 1530 2:13 592
Turnout Turnout Time 1st Unit 2010 2:11 1598 2:04 695
Time 2011 2:06 1654 2:26 784
2012 1:51 1845 1:52 892
2008-12 2:03 8121 2:02 3595
Baseline 2:03 2:02
2008 5:21 1494 7:06 632
2009 5:06 1530 6:19 592
Travel Time 1st Unit 2010 5:10 1598 6:30 695
Distribution 2011 5:13 1654 5:58 784
2012 4:56 1845 5:41 892
2008-12 5:00 8121 5:58 3595
Travel Baseline 5:00 5:58
Time
2008 5:33 1 5:25 1
2009 7:33 4 6:47 3
Travel Time ERF 2010 2:39 1 10:18 2
Concentration 2011 4:56 3 9:00 1
2012 - 0 5:53 2
2008-12 6:40 9 6:47 9
Baseline 6:40 6:47
238
2008 7:58 1494 9:44 632
2009 7:19 1530 8:36 592
Total Response Time 1st
Unit 2010 7:42 1598 9:01 695
Distribution 2011 8:05 1654 9:09 784
2012 7:48 1845 8:32 892
Total
2008-12 7:44 8121 8:35 3595
Response Baseline
7:44
8:35
Time 2008 8:16 1 7:43 1
2009 11:03 4 9:30 3
Total Response Time ERF 2010 9:39 1 12:36 2
Concentration 2011 8:09 3 12:43 1
2012 - 0 8:25 2
2008-12 9:22 9 9:30 9
Baseline
9:22
9:30
ERF [Low Risk] = 3 personnel
ERF [Moderate Risk] = 3 Personnel
ERF [High Risk] = 10 Personnel
ERF [Special Risk] = 16 Personnel + MABAS
Travel time
Effective Response Force
METRO/URBAN
1st
Unit Moderate Risk
Metro RMZs: 5, 6, 11, 12, 13, 14,
Benchmark 4:00
8:00
15, 16, 21, and 23
Baseline 5:00
5:58
Urban RMZs: 18
SUBURBAN
Benchmark 5:00
10:00
Suburban RMZs: 1, 4, 17, 104, and
Baseline 6:40
6:47
105
Technical Rescue Baseline Performance for 2008-2012
Low: Removal from stuck elevators is the only incident that is considered low risk. An ERF of
three personnel is necessary to complete the critical task assignments for low risk technical
rescue incidents.
239
Moderate: Rescues involving a motor vehicle accident (no entrapment) that did not include
speeds over 45 mph, involve a rollover, a tractor trailer, a bus, or a train. Also included are any
rescues located on or near a trail. An ERF of ten personnel is necessary to complete the critical
task assignments of moderate risk technical rescue incidents.
High: Rescue involving vehicle extrication with entrapment, a vehicle into a structure, an
industrial entrapment, or water/ice is considered high risk. An ERF of 16 personnel is necessary
to complete the critical task assignments of high risk technical rescue incidents.
Special: Rescue involving structural collapse, confined space entry, rope, high angle, or trench
collapse is considered special risk. Special risk incidents will cause the Special Operations
Rescue Team (SORT) to be activated in addition to the high risk deployment of 16 personnel.
Figure 127: Technical Rescue Baseline Performance
Metro / Urban
Suburban
TECHNICAL RESCUE: Type 351-370 90% Data 90% Data
Fractal Set Fractal Set
2008 :56 4 :57 3
2009 1:19 5 :47 3
Alarm Pick-up to Dispatch 2010 1:19 2 2:22 4
Handling 2011 1:15 6 1:27 3
2012 1:39 2 1:40 5
2008-12 1:23 19 1:29 18
Baseline 1:23 1:29
2008 1:14 4 1:54 3
2009 2:37 5 1:56 3
Turnout Turnout Time 1st Unit 2010 1:01 2 1:38 4
Time 2011 2:10 6 1:01 3
2012 1:28 2 1:59 5
2008-12 2:09 19 1:59 18
Baseline 2:09 1:59
240
2008 6:30 4 5:31 3
2009 6:03 5 6:20 3
Travel Time 1st Unit 2010 :29 2 6:50 4
Distribution 2011 3:14 6 5:02 3
2012 3:26 2 4:33 5
2008-12 3:50 19 5:12 18
Travel Baseline 3:50 5:12
Time 2008 - - 8:43 2
2009 - - 11:57 2
Travel Time ERF 2010 - - - -
Concentration 2011 4:05 1 - -
2012 7:57 1 5:59 1
2008-12 7:57 2 8:43 5
Baseline 7:57 8:43
2008 7:26 4 7:00 3
2009 7:38 5 8:39 3
Total Response Time
1st Unit 2010 6:09 2 9:40 4
Distribution 2011 6:23 6 7:47 3
2012 6:13 2 8:29 5
Total
2008-12 6:23 19 7:47 18
Response Baseline 6:23 7:47
Time 2008 - - 13:56 2
2009 - - 18:46 2
Total Response Time
ERF 2010 - - - -
Concentration 2011 7:10 1 - -
2012 10:31 1 11:41 1
2008-12 8:51 2 14:46 5
Baseline
8:51
14:46
ERF [Low Risk] = 3 Personnel
ERF [Moderate Risk] = 10 Personnel
ERF [High Risk] = 16 Personnel
ERF [Special Risk] = 16 Personnel + SORT + MABAS
241
Travel time
Effective Response Force
METRO/URBAN 1st Unit Moderate Risk
Metro RMZs: 5, 6, 11, 12, 13, 14,
Benchmark 4:00
8:00
15, 16, 21, and 23
Baseline 3:50
7:57
Urban RMZs: 18
SUBURBAN
Benchmark 5:00
10:00
Suburban RMZs: 1, 4, 17, 104, and
Baseline 5:12
8:43
105
Hazmat Baseline Performance for 2008-2012
Low risk hazmat incidents included investigations with carbon monoxide, natural gas, or other
commonly encountered hazardous materials such as gasoline and anti-freeze. An ERF of three
personnel is necessary to complete the critical task assignments of low risk hazmat incidents.
Moderate risk hazmat incidents included HazMat spills and gas leaks that include methane and
propane. Moderate risk incidents include investigations inside a structure for hazardous
materials. An ERF of 13 personnel is necessary to complete the critical task assignments of
moderate risk incidents.
High risk incidents include incidents where a full team roll-out of the Johnson County Hazardous
Materials Response Team is required. Incidents include a large quantity release from
transportation accidents, an unknown chemical release from a lab, or a chemical release at a
manufacturing facility. An ERF of 16 personnel is necessary to initiate the critical task
assignments of high risk HazMat incidents.
Special risk incidents require full team activation plus additional HazMat specialists to initiate
the critical task assignments associated with a special risk event. Examples include any large-
scale HazMat event, spills related to a train derailment, a dirty bomb or a WMD event. An ERF
of 22 personnel is necessary to initiate the critical task assignments. Additional resources may
include the Iowa WMD team and/or the 71st Civil Support Team.
242
Figure 128: Hazardous Materials Baseline Performance
Metro / Urban
Suburban
HAZARDOUS MATERIALS: Type 411-430 90% Data 90% Data
Fractal Set Fractal Set
2008 1:09 13 1:34 6
2009 1:54 17 :54 2
Alarm Pick-up to Dispatch 2010 3:25 21 2:06 9
Handling 2011 2:15 18 2:21 10
2012 3:13 27 3:00 7
2008-12 2:11 96 2:08 34
Baseline 2:11 2:08
2008 2:13 13 2:00 6
2009 2:30 17 2:06 2
Turnout Turnout Time 1st Unit 2010 2:10 21 2:10 9
Time 2011 2:19 18 2:29 10
2012 2:03 27 1:55 7
2008-12 2:12 96 2:06 34
Baseline 2:12 2:06
2008 3:17 13 2:32 6
2009 4:47 17 6:02 2
Travel Time 1st Unit 2010 4:22 21 5:32 9
Distribution 2011 3:37 18 5:49 10
2012 5:23 27 5:33 7
2008-12 3:55 96 5:32 34
Travel Baseline 3:55 5:32
Time 2008 7:06 10 6:58 4
2009 5:56 10 - -
Travel Time ERF 2010 6:27 15 5:32 8
Concentration 2011 7:14 9 6:47 6
2012 6:08 12 7:28 6
2008-12 6:27 56 7:28 24
Baseline 6:27 7:28
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2008 5:46 13 5:02 6
2009 7:24 17 7:40 2
Total Response Time 1st
Unit 2010 7:42 21 7:05 9
Distribution 2011 7:03 18 8:54 10
2012 8:45 27 10:02 7
Total
2008-12 7:06 96 7:56 34
Response Baseline 7:06 7:56
Time 2008 11:26 10 10:07 4
2009 13:34 10 - -
Total Response Time ERF 2010 10:11 15 9:42 8
Concentration 2011 12:04 9 12:01 6
2012 12:16 12 12:33 6
2008-12 11:26 56 11:15 24
Baseline
11:26
11:15
ERF [Low Risk] = 3 Personnel
ERF [Moderate Risk] = 13 Personnel
ERF [High Risk] = 16 Personnel
ERF [Special Risk] = 16 Personnel + JCHMRT
Travel time
Effective Response Force
METRO/URBAN
1st
Unit Moderate Risk
Metro RMZs: 5, 6, 11, 12, 13, 14,
Benchmark 4:00
8:00
15, 16, 21, and 23
Baseline 3:55
6:27
Urban RMZs: 18
SUBURBAN
Benchmark 5:00
10:00
Suburban RMZs: 1, 4, 17, 104, and
Baseline 5:32
7:28
105
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Figure 129: Four Minute Response Areas
245
Figure 130: 2008 Response Time
246
Figure 131: Response Time 2009-2011
Concentration Study of Resources
According to CFAI, concentration is the spacing of multiple resources arranged close enough
together so that an ERF can be assembled on-scene within adopted public policy timeframes.
Simply stated, resources should be located throughout the community so that the needs of an
emergency incident are met in a timely fashion. Also, concentration of resources may vary since
an increased risk potential or population density may equal an amplified need for the spacing of
resources.
For the purposes of this concentration study, the following factors were examined to determine
availability of the ICFD’s concentration of resources: ERF, incident data (responses) by RMZ,
and incident data (responses) by station.
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Typically, high and special risk incidents require a larger ERF to successfully mitigate an
emergency.
In summary, the appropriate department and mutual aid resources are dispatched either
automatically or by request in accordance with the county-wide response matrix and the Johnson
County Mutual Aid Box Alarm System (MABAS), which coincides with critical tasking and the
related ERF. The following charts show incident responses (all incident types) and travel time
performance by station for 2012:
Figure 132: 2012 Incident Responses by Station
Station 1, 2124
Station 2, 1162
Station 3, 1369
Station 4, 520
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Figure 133: Travel Time by Station
The data analysis concludes a direct relationship to community service demand and higher
population density RMZs. Simply stated, service demand is peak for the areas where people are
concentrated.
Furthermore, station response area map (four-minute travel time Figure 132 above) exhibit
adequate coverage to most of the service demand. However, noteworthy overlap of some station
response areas is observed and there are low service demand areas and low population density
RMZs outside of the four-minute travel time. Consideration should be given to improve
resource (station) concentration (location), especially in District 4 and District 2, where the
department faces its longest travel times. Consideration also must be given to the future growth
of the city (refer to the growth boundary map below) and the correlating impact upon population
density.
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Reliability Study
The ultimate goal of conducting a reliability study is to evaluate the dependability of the ICFD’s
emergency services when called upon by the community. The department performed a reliability
study to verify the overall service dependability in terms of distribution, resources, and
performance. Measuring service reliability involved an analysis of whether or not the required
emergency resources within the distribution network were located appropriately and available
when a call for service was received, and whether or not their arrival was within specified
response time parameters.
Figure 134: 2008-2012 All Code 3 Incidents Call Processing Time in Seconds
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Figure 135: 2008-2012 All Code 3 Incidents Turnout Time in Seconds
Figure 136: 2008-2012 All Code 3 Incidents Travel Time in Minutes
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Location and Distribution Reliability
As mentioned previously, the current dispatching system is computer-aided, which is why the
distribution network functions both statically and dynamically, depending on the physical
location of resources. When all first arriving units are in their corresponding station locations,
the department considers the distribution of resources to be statically reliable. Likewise, if
response units are mobile (in transit) or located outside of their time-determined station response
areas, the department considers the distribution of resources to be dynamically reliable.
Therefore, no matter where the resources are located within the distribution network, they are
considered to either be statically or dynamically reliable because of the near-ubiquitous nature of
the current county-wide dispatching system.
Availability and Resource Reliability
Distribution reliability is only as good as the availability of the response resources within it. If
units are unavailable to respond to incidents because of a high emergency workload (call
volume), then reliability may be in question. However, response resources are typically dynamic
within their static area during most non-emergency activities (training, business inspections,
public education, public relations events, etc.). The ICFD has a total of five fire companies. To
improve response times and to ensure at least one company is available within each district, the
department schedules regular training sessions that involve hands-on training and shifts
companies as needed to ensure coverage in all districts. Didactic training classes are offered by
videoconferencing to keep units within their response districts. Essentially, resources are usually
assigned to non-emergency activities within their station’s response area. Therefore, availability
plays a huge role in determining whether or not the resources within a given distribution network
will be reliable.
Yet, unavailability does not necessarily yield unreliability. For example, if an emergency
response unit is unavailable to respond to an incident, for whatever reason, but another, more
distant unit is able to arrive on-scene within predetermined response time parameters (i.e.
benchmark or baseline 90th percentile measures), then ultimately the service provided to the
community was reliable. Consequently, in order to accurately determine whether or not the
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ICFD’s service reliability was being impacted by the unavailability of resources; the ICFD had to
analyze response time performance data within the distribution network.
Total Response Time and Performance Reliability
Response time performance is the definitive measurement of service reliability. Even though
resources may be located appropriately in a distribution network and available to respond to calls
for service, the potential to be unreliable still exists if the resources are unable to arrive at
emergency incidents within predetermined response time parameters (i.e. benchmark or baseline
90th percentile measures).
The term ― benchmark‖ refers to a standard by which something can be measured. The term
― baseline‖ refers to the assessment and measurement of current service delivery practices relative
to a benchmark. Therefore, in order to correctly identify potential gaps in the overall service
reliability, the ICFD had to evaluate its performance reliability in relation to benchmark or
baseline 90th percentile measurements.
Performance reliability can be evaluated in many different ways (turnout time, travel time and
total response time) and on many different levels (first arriving unit, second arriving unit, and
ERF). However, the department decided that the best way to determine its performance
reliability was to examine the total response time of first arriving units to Code 3 (emergency)
incidents in Iowa City relative to baseline 90th percentile measures and population density.
Specifically, the department analyzed all Code 3 (emergency) incidents within each RMZ that
took place within city limits in the past five years. By analyzing the incidents geographically at
the RMZ level, the department was able to pinpoint exact areas of performance unreliability in
the distribution network.
Figure 137 depicts the department’s first arriving unit total response time reliability for all Code
3 (emergency) fire, EMS, hazmat, and technical rescue responses from 2008 to 2012. A
reliability percentage was assigned to each RMZ according to whether or not the baseline 90th
percentile performance measures were met, or not met, for the first-arriving unit. Overall, the
department’s first arriving unit reliability for all emergency incidents from 2008 to 2012 was
91.1 percent.
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Figure 137: First Arriving Unit Total Response Time Reliability
RMZ
Met Not Met Met Not Met
1 1038 137 248 31
4 1271 139 325 27
5 533 152 120 38
6 546 41 105 10
11 894 28 213 7
12 321 50 62 7
13 223 136 43 39
14 1056 195 213 47
15 322 36 74 6
16 1267 31 284 7
17 1318 26 279 8
18 1895 178 457 46
21 2424 43 523 8
23 1070 164 227 39
104 256 27 66 10
105 586 85 150 21
Total 15020 1468 3389 351
Turnout Travel
Metro RMZs: 5,6, 11, 12, 13, 14, 15, 16, 21, 23
Urban RMZs: 18
Suburban RMZs: 1, 4, 17, 104, 105
8:12
Suburban :90 :90 6:30 9:30
Metro/Urban :90 :90 5:12
Total Response TimeAlarm Processing
86.5%
90.5%
87.3%
Class
85.3%
86.8%
87.7%
76
171
86.5%
98.3%2467
1234
283
84.4%
89.9%
97.6%
98.1%
91.4%
1344
2073
97.2%
90.9%
98.5%531
266
287
503
671
1175 88.3%
1410
685
587
90.1%
77.8%
93.0%
922
371
62.1%359
1251
358
1298
81.9%
92.5%
97.6%
52.4%82
260
80
291
220
69
92.3%
75.9%
91.3%
96.8%
89.9%
16488 91.1%3740 90.6%
Total Response
Time, 2008-2012
Total Response
Time, 2012 OnlyTotal Emergency
Responses Reliability Total Emergency
Responses Reliability
279 88.9%
352
158
97.0%
115
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STANDARD OF COVER
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F. PERFORMANCE OBJECTIVES AND MEASURES
Following a comprehensive review of the ICFD’s historical response performance and a
thorough analysis of the quality of the distribution network as it pertained to the distribution,
concentration, reliability and comparability of emergency response resources, the department
was able to utilize the findings to assist in the development of appropriate performance
objectives and measures for its Standard of Cover (SOC). The ICFD recognizes that only
through the establishment of performance objectives and measures will it have the ability to
evaluate the overall effectiveness of achieved response outcomes within each service program.
This section establishes benchmark and baseline performance objectives and measures each
service program (fire, EMS, rescue, and hazmat) in direct relation with risk level classifications
(low, moderate, and high) and population densities (metropolitan, urban, and suburban).
Performance objectives are qualitative goal statements that generalize the intended outcome of a
program in words rather than numbers, whereas performance measures are the quantitative or
numerical representation of activities and resources that help evaluate whether goals are met.
The department used previous findings, along with the recommended best practices from
national standards, to drive the development of benchmark and baseline performance objectives
and measures. As mentioned earlier, the term ― benchmark‖ refers to a standard by which
something can be measured, but also is representative of industry best practices (i.e. NFPA).
The term ― baseline‖ refers to the assessment and measurement of current service delivery
practices relative to a benchmark.
In regard to establishing benchmark performance objectives for each service delivery program,
the department utilized 90th percentile time measures outlined in NFPA Standard 1710.
Specifically, the department focused on using recommended total response time benchmarks for
the first arriving unit and the ERF in relation to population density (metropolitan, urban, and
suburban). Total response time equates to the summation of alarm processing time, turnout time,
and travel time of response units.
STANDARD OF COVER
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Total Response Time (TRT) = Alarm Processing Time + Turnout Time +
Travel Time
In regard to establishing baseline performance objectives for each service delivery program, the
department utilized aggregated 90th percentile time measures derived from 2008-2012
emergency response data. Specifically, the baseline objectives and measures focused on the total
response time performance of the first arriving unit (distribution) and the ERF (concentration),
but also took into consideration the associated service risk levels (low, moderate, and high) and
RMZ population densities (metropolitan, urban, and suburban).
Fire Suppression Benchmark Performance Objectives and Measures
Figure 138: Benchmark Fire Suppression by Population Density
NFPA 1710 Fire Suppression Benchmark Performance Times by Population Density
Population
Density
Alarm
Processing Turnout
1st Arriving
Travel
ERF
Travel
1st Arriving
TRT
ERF
TRT
Metropolitan 1:00 1:20 4:00 8:00 6:20 10:20
Urban 1:00 1:20 4:00 8:00 6:20 10:20
Suburban 1:00 1:20 5:00 10:00 7:20 12:20
First Arriving Unit Total Response Time for All Risks: For 90 percent of all calls for fire
suppression services, the TRT of the ICFD’s first arriving unit, staffed with a minimum of three
personnel shall be: 6 minutes, 20 seconds in metropolitan and urban population areas, 7 minutes,
20 seconds in suburban population areas. The first arriving unit shall be capable of: providing
500 gallons of water and 1,500 gallons per minute (GPM) pumping capacity, initiating
command, requesting additional resources, establishing and advancing an attack line, flowing a
minimum of 150 GPM, establishing an uninterrupted water supply, containing the fire, rescuing
at-risk patients, and performing salvage operations. These operations shall be done in
accordance with the ICFD’s administrative policy guidelines, while at the same time providing
for the safety of all personnel and the community.
Effective Response Force (ERF) Total Response Time for All Risks: For 90 percent of all calls
for fire suppression services, the TRT for the arrival of the ERF staffed with the appropriate
number of personnel to meet critical tasking shall be: 10 minutes, 20 seconds in metro and urban
areas, 12 minutes, 20 seconds in suburban population areas. The ERF shall be capable of:
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establishing command, providing an uninterrupted water supply, advancing an attack line and a
backup line for fire control, complying with the Occupational Safety and Health Administration
(OSHA) requirements of two in-two out, completing forcible entry, searching for and rescuing
at-risk patients, ventilating the structure, controlling utilities, and performing salvage and
overhaul. The ERF shall also be capable of placing elevated streams into service from aerial
ladders. These operations shall be done in accordance with the ICFD’s administrative policy
guidelines, while at the same time providing for the safety of all personnel and the community.
Fire Suppression Baseline Performance Objectives and Measures
Figure 139: Baseline Performance Times by Population Density
2008-2012 Fire Baseline Performance Times by Population Density
Population Density 1st Arriving TRT ERF TRT
Metropolitan 6:36 11:00
Urban 6:36 11:00
Suburban 8:25 14:15
Should additional firefighters be needed for a structure fire, the Incident Commander can
upgrade the alarm to five levels of box alarms, as outlined in the Johnson County Mutual Aid
Box Alarm System (MABAS). The factors affecting the decision to upgrade the alarm level
include, but are not limited to, percentage of involvement, rescue operations, number of victims,
number of casualties, length of incident, exposure problems, presence of hazardous materials,
and the presence of built-in fire protection systems.
Objective: To stop escalation of a major fire when found. Typically, this means conducting a
search for any victims, confining fire to the floor of origin, plus limiting heat and smoke damage
to the area of floor origin. The tasks of rapid intervention rescue for trapped firefighters,
property salvage, and crew rotation with rehabilitation requires additional personnel on a fire
scene in this risk category.
First Arriving Unit Total Response Time for all Fire Risks: For 90% of all requests for fire
suppression services, the total response time of the first arriving unit, staffed with a minimum of
three personnel shall be: 6 minutes 36 seconds in metropolitan and urban population areas; 8
minutes 9 seconds in suburban population areas.
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Effective Response Force (ERF) Total Response Time for all Fire Risks: For 90% of all requests
for fire suppression services, the total response time of the ERF shall be: 10 minutes, 45 seconds
in metropolitan and urban population areas; and 12 minutes, 54 seconds in suburban population
areas. The ERF shall be capable of: establishing command; providing an uninterrupted water
supply; advancing an attack line and a backup line for fire control; complying with the
Occupational Safety and Health Administration (OSHA) requirements; the ERF shall also be
capable of performing all operations in accordance with the department’s administrative policy
guides while at the same time providing for the safety of all personnel and the community.
EMS Benchmark Performance Objectives and Measures
Figure 140: Benchmark EMS by Population Density
NFPA 1710 EMS Benchmark Performance Times by Population Density
Population Density Alarm Processing Turnout 1st Arriving Travel
Metropolitan 1:00 1:00 4:00
Urban 1:00 1:00 4:00
Suburban 1:00 1:00 4:00
First Arriving Unit Total Response Time for All Risks: For 90 percent of all calls for EMS
services, the TRT of the ICFD’s first arriving unit (with BLS capabilities), staffed with a
minimum of three personnel shall be: 6 minutes in metropolitan, and urban population areas and
7 minutes in suburban population areas. The first arriving unit shall be capable of providing
medical services that will stabilize the situation and provide care and support to the patient.
EMS Baseline Performance Objectives and Measures
Figure 141: EMS Baseline by Population Density
2008-2012 EMS Baseline Performance Times by Population Density
Population Density 1st Arriving TT
Metropolitan 7:44
Urban 7:44
Suburban 8:35
Total Response Time for All Risks: For 90 percent of all calls for EMS services, the TRT shall
be: 7 minutes, 44 seconds in metropolitan and urban areas and 8 minutes, 35 seconds in
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suburban, population areas. The unit shall be capable of providing medical services that will
stabilize the situation and provide care and support to the patient.
Objective: To provide medical treatment for an incident involving at least one patient. The goal
is to stop the deterioration of a patient’s medical condition through basic life support and
defibrillation until the arrival of an advanced life support unit.
Technical Rescue Benchmark Performance Objectives and Measures
Figure 142: Benchmark Technical Rescue by Population Density
NFPA 1710 Technical Rescue Benchmark Performance Times by Population Density
Population
Density
Alarm
Processing Turnout 1st Arriving Travel ERF Travel
1st Arriving
TRT
ERF
TRT
Metropolitan 1:00 1:20 4:00 8:00 6:20 10:20
Urban 1:00 1:20 4:00 8:00 6:20 10:20
Suburban 1:00 1:20 5:00 10:00 7:20 12:20
First Arriving Unit Total Response Time for All Rescue Risks: For 90 percent of all calls for
rescue services, the TRT of the ICFD’s first arriving unit, staffed with a minimum of three
personnel shall be: 6 minutes, 20 seconds in metropolitan and urban population areas, and 7
minutes, 20 seconds in suburban population areas. The first arriving unit shall be capable of
providing rescue services to stabilize the incident and extricate patients from the emergency
situation.
Effective Response Force (ERF) Total Response Time for All Rescue Risks: For 90 percent of
all calls for rescue services, the TRT of the ERF, staffed with the appropriate number of
personnel to meet critical tasking shall be: 10 minutes, 20 seconds in metropolitan and urban
population areas, and 12 minutes, 20 seconds in suburban population areas. The ERF shall be
capable of providing rescue services to stabilize the incident and extricate patients from the
emergency situation.
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Technical Rescue Baseline Performance Objectives and Measures
Figure 143: Baseline Technical Rescue by Population Density
2008-2012 Technical Rescue Baseline Performance Times by Population Density
Population Density 1st Arriving TRT ERF TRT
Metropolitan 6:23 8:51
Urban 6:23 8:51
Suburban 7:47 14:46
Technical Rescue Baseline Performance Goal Statement: For all rescue incidents in all
population densities, the ICFD shall arrive in a timely manner with sufficient staffing and
resources to stabilize the situation and extricate the patient(s) from the emergency
situation.
First Arriving Unit Total Response Time for All Rescue Risks: For 90 percent of all calls for
rescue services, the TRT of the ICFD’s first arriving unit, staffed with a minimum of three
personnel shall be: 6 minutes, 23 seconds in metropolitan and urban population areas, and 7
minutes, 47 seconds in suburban population areas. The first arriving unit shall be capable of
providing rescue services to stabilize the incident and extricate patient(s) from the emergency
situation.
Effective Response Force (ERF) Total Response Time for All Rescue Risks: For 90 percent of
all calls for rescue services, the TRT of the ERF, staffed with the appropriate number of
personnel to meet critical tasking shall be: 8 minutes, 51 seconds in metropolitan and urban
population areas, and 14 minutes, 46 seconds in suburban population areas. The first arriving
unit shall be capable of providing rescue services to stabilize the incident and extricate patient(s)
from the emergency situation.
Hazardous Materials Benchmark Performance Objectives and Measures
Figure 144: Benchmark Hazmat by Population Density
NFPA 1710 Hazmat Benchmark Performance Times by Population Density
Population
Density Alarm Processing Turnout 1st Arriving Travel
ERF
Travel
1st Arriving
TRT
ERF
TRT
Metropolitan 1:00 1:20 4:00 8:00 6:20 10:20
Urban 1:00 1:20 4:00 8:00 6:20 10:20
Suburban 1:00 1:20 5:00 10:00 7:20 12:20
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First Arriving Unit Total Response Time for All Hazmat Risks: For 90 percent of all calls for
hazmat services, the total response time of the ICFD’s first arriving unit, staffed with a minimum
of three personnel shall be: 6 minutes, 20 seconds in metropolitan and urban population areas,
and 7 minutes, 20 seconds in suburban population areas. The first arriving unit shall be capable
of providing hazmat services to stabilize the situation, stop escalation of the incident, contain the
hazard where applicable, and establish an action plan for successful conclusion of the incident.
Effective Response Force (ERF) Total Response Time for All Hazmat Risks: For 90 percent of
all calls for hazmat services, the TRT of the ERF, staffed with the appropriate number of
personnel to meet critical tasking shall be: 10 minutes, 20 seconds in metropolitan and urban
population areas, and 12 minutes, 20 seconds in suburban population areas. The ERF shall be
capable of providing hazmat services to stabilize the situation, stop escalation of the incident,
contain the hazard where applicable, and establish an action plan for successful conclusion of the
incident
Hazardous Materials Baseline Performance Objectives and Measures
Figure 145: Baseline HAZMAT by Population Density
2008-2012 Hazmat Baseline Performance Times by Population Density
Population Density 1st Arriving TRT ERF TRT
Metropolitan 7:06 11:26
Urban 7:06 11:26
Suburban 7:56 11:15
Hazmat Baseline Performance Goal Statement: For all hazmat incidents in all population
densities, the ICFD shall arrive in a timely manner with sufficient resources to stabilize the
situation, stop escalation of the incident, contain the hazard where applicable, and establish
an action plan for successful conclusion of the incident.
First Arriving Unit Total Response Time for All Hazmat Risks: For 90 percent of all calls for
hazmat services, the TRT of the ICFD’s first arriving unit, staffed with a minimum of three
personnel shall be 7 minutes, 6 seconds in metropolitan and urban population areas, and 7
minutes, 56 seconds in suburban population densities. The first arriving unit shall be capable of
262
providing hazmat services to stabilize the situation, stop escalation of the incident, contain the
hazard where applicable, and establish an action plan for successful conclusion of the incident.
Effective Response Force (ERF) Total Response Time for All Hazmat Risks: For 90 percent of
all calls for rescue services, the TRT of the ERF, staffed with the appropriate number of
personnel to meet critical tasking shall be 11 minutes, 26 seconds in metropolitan and urban
population areas, and 11 minutes, 15 seconds in suburban population densities. The ERF shall
be capable of providing hazmat services to stabilize the situation, stop escalation of the incident,
contain the hazard where applicable, and establish an action plan for successful conclusion of the
incident.
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G. COMPLIANCE METHODOLOGY
In the previous sections of this document, the ICFD has provided a description of the current
delivery system, reviewed the existing risk found in the community, and given an overview of
the department’s performance over the past five years with consideration, study, and analysis of
the performance relative to the distribution, concentration, and reliability of emergency response
resources. Section F presented the department’s Standard of Cover (SOC) component with
overall benchmark and baseline performance objectives and their measures, which were
consistent with industry best practices for population densities and risk levels outlined within the
CFAI FESSAM, 8th Edition.
This section of the community risks and emergency services analysis (CRESA) and SOC
establishes the compliance commitment, which determines how, when, and what will be
measured to ensure that the CRESA driven SOC are valid. In turn, the CRESA-SOC helps
provide appropriate direction for strategic planning and the requirement that service level
objectives and performance measures be evaluated, and efforts made to reach or maintain the
established levels.
Continuous Improvement
The continuous improvement process must be perpetual, comprehensive, and resilient in order to
help ensure not only compliance, but that quality service is provided to the community. The
ICFD is dedicated to ensuring constant improvement compliance as part of its commitment to the
community. The Fire Chief directs the command and continuous improvement teams, while the
Deputy Chief serving as the department’s accreditation manager, guides the continuous
improvement effort.
264
As part of the ICFD’s compliance commitment, the department:
Reviews Risk and SOC Performance
Community Risk and Emergency Services Analysis (annually and every five
years)
SOC performance measures, a continuous update of the Self-Assessment Manual
and SOC document, as required to maintain accreditation with the Center for
Public Safety Excellence (CPSE)
Evaluates Performance
Baseline total (emergency) response time by risk, type (service program), and
population density
Benchmark total (emergency) response time by risk, type (service program), and
population density
First arriving and second arriving total unit (emergency) response reliability by
RMZ
ERF
Develops Compliance Strategies
Determines strengths, weakness, opportunities, and threats
Seeks ways to maximize strength and opportunities
Seeks solutions to weaknesses and threats
Communicates Expectations
Gives details of compliance measurement and expectations to staff
Encourages staff feedback
Shares non-compliance consequences to staff
Verifies Compliance
Ensures requirements are met by the department
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Adjusts Accordingly
Makes sure any service adjustment maintains or improves performance
The planning meetings help the department review and evaluate performance. This monitoring
examines in detail the department’s emergency services and the administrative (budget, safety
message, fire marshal, evaluations, training, reports, etc.) items. The planning meeting report
illustrates emergency service items related to turnout, travel time, and total response time
(average and 90th percentile) across all three shifts and by month. The comparison also includes
a shift and year-to-date average and 90th percentile.
The Emergency Service items include:
Monthly incident totals
Monthly incidents by type
Average total response times
First turnout by shift, 90th percentile
Travel time of first arriving unit, 90th percentile
Total response time of first arriving unit, 90th percentile
Monthly unit responses
ERF
Monthly Staff Meetings
Staff meetings facilitate the timely review of criterion, core competencies, and performance
indicators, for the purpose of identifying status changes, using input from assigned shift
personnel, as well as Strategic Plan review of progress and/or obstacles (action plan), and
adjusting goals and objectives as required.
A brief summary statement of recommended changes to assigned criterion and performance
indicators is presented at monthly staff meetings, as prescribed in the Iowa City Fire Department
Self-Assessment Monthly Review Schedule and Log Sheet. Recommendations are limited to big
picture changes.
266
All ICFD general policies and operational guidelines are reviewed annually by all personnel.
Review and the acceptance/rejection of proposed modifications are conducted at monthly staff
meetings, according to a scheduled plan.
Quarterly All Officer Meetings
All command and company officers meet quarterly to communicate goals and priorities for the
upcoming quarter. Another section of the meeting is devoted to progress reports on unresolved
issues from previous meetings, and a final section of the meeting is given two or three issues that
are selected by company officers for in-depth discussion. Quarterly reports are presented with
the meeting agenda to display conformance to performance objectives related to training and
emergency response. Methods to promote continuous improvement are discussed.
Annual Employee Survey
The ICFD conducts an annual employee survey in order to acquire feedback and improve agency
policies and procedures.
Spring meeting (April)
Previous calendar year data review – calendar year data is arranged for presentation. Data to be
presented include, but may not be limited to: incidents by group, incidents by alarm type,
response reliability, incident counts, fire by property type, property loss data, multiple alarm
incidents, injuries and fatalities, mutual aid given and received, EMS/rescue incidents by call
type, responses by alarm hour, benchmark vs. baseline effective response times, response time
component and trend analysis, and incident count and type analysis by census tract (RMZ). The
data also include GIS mapping, when available. Review and approval of changes to calendar
year criterion and performance indicators – calendar year modifications and updates to criterion,
core competencies, and performance indicators are presented for annual review.
267
Summer meeting (June)
Effects of data and incident review – an opportunity to reflect on the previous year’s
events and data. Program managers remain open to the use of other data sources that
might better assist them in their decision-making.
Goals and objectives not otherwise identified – consideration given to ideas for
improvement that may require or warrant the creation of goals and objectives to fulfill.
Performance Indicator (PI) plans – planning for the future as it applies to continuous
improvement. A review of department environmental changes that impact future plans.
Strategic Plan – review of progress and/or obstacles, adjusting goals and objectives, as
required.
Annual goals and objectives – department goals and objectives from the previous year are
reviewed for completion, amended, and/or reconstructed to comply with current
department needs.
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H. OVERALL EVALUATION AND CONCLUSION RECOMMENDATIONS
The overall evaluation is the final component of the Community Risks and Emergency Services
Analysis and Standard of Cover (CRESA-SOC) document, which ties together all work and
summarizes the process for the decision-makers. The entire process has been designed around
risk, risk mitigation, and outcome. Success of the process can be measured by achievement of
the desired outcome.
Throughout the process, the ICFD has identified many areas in which the current levels of
service delivery either meet or exceed the adopted performance measures. As anticipated,
several opportunities for improvement were also discovered. The following conclusions and
recommendations addressing these factors were provided for consideration by the Fire Chief and
other policy makers.
Conclusions
Through the evaluation of community expectations and other elements of the Standard of Cover
document, the ICFD has established goals and objectives. These goals and objectives address
the issues of keeping up with city growth and improving the level of service to a degree that will
achieve the benchmark goals and objectives listed throughout this document. The ICFD will
continue to project the needs and plan for future services through continuous data analysis, the
City’s annual budget process, and the three-year Capital Improvement Plan.
As part of the continuous improvement process, the department rationally and systematically
evaluated the community. Using industry best practices and standards, a comprehensive
assessment of community risk was performed, examining risk levels by service delivery type and
geographic planning zone. A thorough discussion of risk organized by service delivery type (fire
suppression, EMS, rescue, and hazmat) is presented and carefully analyzed.
Within the scope of RMZs, risk levels were classified through the use of a probability and
consequence methodology. Historical response frequency data was used, along with the
identification of community risk factors such as target hazards, at-risk populations, property
values, and economic and historic loss considerations. Population densities were analyzed by
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RMZ, and combine with local considerations to predict service demand, and form the basis for
important risk level conclusions.
Risk level classifications were determined for each service delivery type (fire suppression, EMS,
rescue, and hazmat) by considering the probable frequency of each specific incident type and
their potential for loss. A critical task analysis was then completed for each risk level
classification, which identified the number of staff necessary to mitigate an incident within a
prescribed timeframe, establishing the ERF.
Historical response time data was used to measure current system performance. Performance
objectives were outlined, which specified that total response time measures be viewed in the
framework of alarm handling, and turnout and travel times. Baseline and benchmark
performance measures for distribution (first unit arrival) and concentration (ERF) of resources
were set forth by service delivery type and population density.
Methodology was developed to ensure the timely review of actual system performance, the
baseline and benchmark objectives, and any changes in community risk, service demand,
planning zones (RMZs), or operations that impact service level objectives. The overall
compliance strategy included the need to create an action plan designed to meet and maintain
current service level objectives regarding the deployment of department resources.
Through the systematic evaluation of the community and the ICFD, several areas were noted for
improvement. Although existing data collection is extensive, the department concluded that
information could be better captured and further refined. Another finding suggests the need for
additional study of deployment in the area of resource allocation and placement to determine the
best sites for the planned Station 5 and Station 6 locations. Finally, it is recommended that this
CRESA-SOC document be embraced together with its associated findings and service level
objectives.
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Recommendations
The following recommendations are made as part of the continuous improvement effort for the
promotion of excellence within the department, and to ensure a safer community for those who
visit, live, work, or learn in Iowa City.
1: Incident information
The ICFD should augment the existing process to ensure that documentation of incident
information (data) better captures the incident exact location, especially incidents that happen
along roadways.
2: Resource allocation and placement
The ICFD should further study the distribution and concentration of current and future human
and physical resources regarding emergency service deployment, emergency workload,
population density, and community risk to ensure that performance objectives and measures are
met. Consideration should be given to improve resource (station) concentration (location),
especially in District 4 and District 2, where the department faces its longest travel times.
Consideration also must be given to the future growth of the city and the correlating impact upon
population density. Three new fire stations were planned in the FY2007-FY2011 Capital
Improvement Program (CIP); however, two of them are programmed in the unfunded years of
the CIP. Included were Station 4 (recently opened), Station 5, and Station 6. If implemented,
this planning will bring fire protection for the community toward response time standards, as
prescribed in NFPA 1710, 2001 Edition.
3: Emergency Response Times
To meet and exceed the outlined expectations regarding response time performance objectives
and measures and for the long-term future, the ICFD should add two more fire stations - this
would assure the highest service level in all the protected areas of the city.
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The outcome of 2012 data analysis highlighted an issue with response times to RMZs 5 and 13.
The ICFD has made all efforts to improve performance in turnout times by continuously tracking
and reporting on units’ performance. As well, part of the scheduled improvement projects is a
diamond-cut grinding of Emerald Street. Completion of this project should improve Station 2
response times. Further detailed study would help the department identify and address any other
issues that might cause longer travel times.
The ICFD has made all efforts to improve performance in turnout times by continuously
tracking and reporting on units’ performance. Alarm handling time also warrants improvement
as the department looks to improve total response time to an emergency event by minimizing: 1)
the time it takes to process a call for service; 2) the time it takes for firefighters to don personal
protective equipment and board the apparatus; and 3) the time it takes to travel to the incident
address.