FIRE CONSOLIDATION REALITIES III
A REVIEW OF THE FACTS
By Brian R. Juntikka
August 15, 2006
INTRODUCTION
There are nineteen communities in Lee County and each of them own and operate a fire & rescue department. The citizens of these communities organized their own volunteer fire companies, beginning with the City of Fort Myers in 1901. Starting out with absolutely nothing except the community need for fire protection, these volunteer fire companies have improved, expanded and evolved into modern tax supported fire departments and districts. Twelve communities have urbanized to the extent that the local fire departments are no longer volunteer but are fully paid career departments. The other seven are combination part paid/part volunteer departments.
Homeowners have two fire protection costs. They are:
(1.) – taxes paid to support the fire department, and
(2.) - fire insurance premiums
Both subjects are closely related because the quality of fire protection provided dictates the cost of buying a fire insurance policy. In effect, better fire protection results in lower and better insurance rates for the homeowner. The Insurance Services Office – or I.S.O. is a non-political independent organization that serves the insurance industry. They are the agency that actually sends inspectors to each city, county and fire district to rate the level of fire protection – both here in Florida and in forty-four other states as well. Fire insurance companies use these ratings to determine how much to charge their customers.
Do you know what your community fire insurance rating is? Do you know what the tax levy of your community fire district is? How does your community fire district compare with other Florida fire districts and departments? Do you know what the annual cost per fire station is in your community? Do county consolidated fire systems actually save money, lower taxes and provide better service than our area fire districts do? These are legitimate questions that deserve equally legitimate answers. This report examines these subjects in detail and is written in plain English so that those who might not otherwise be familiar with the subject can benefit by it.
Nothing in this report is “hypothetical.” Real numbers are used – taxing rates, budgets, annual cost-per-station amounts, insurance ratings, actual expenditures, actual dollar amounts and similar information. The budgets and/or actual expenditures of the past
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thirty fiscal years are included in this report where that information is available – not only for our local fire districts and cities but for the consolidated county fire systems in Broward County, Charlotte County, Miami-Dade, Sarasota County, Hillsborough County, Orange County and Palm Beach County as well. So are their insurance ratings and their tax levies where this information could be obtained.
This is not the first time I have compiled such a report. In 1996, I prepared a similar report and then updated it in 1997 and again in 1998. The same fire protection agencies are considered in this writing as in the previous reports.
Copies were provided to our local legislative delegation, Lee County Commissioners, Florida Association of Special Districts, Florida Association of County Commissioners and to every city and independent fire control district governing board in Lee County. This writing is the first update since 1998.
For the record, I am not employed by any fire department, fire district, county, city or other political subdivision of the state. My qualifications for compiling this report are as follows:
(a.) - Volunteer firefighter at Iona-McGregor from 1971 to 1981.
(b.) - Co-authored charters to create independent fire control districts in Iona-McGregor in 1975, Alva, Bayshore, Estero, Fort Myers Shores, San Carlos Park, South Trail and Tice in 1976 and several others in the Florida panhandle area in 1980. State legislators used these documents to write district enabling legislation.
(c.) - Elected to Iona-McGregor fire district board of commissioners by the voters for a four-year term in 1977.
(d.) - First president of the Florida Legislated Fire Districts, Incorporated in 1979 and again in 1980.
Additionally, this report and its contents cost county taxpayers zero dollars. I compiled this information on my own time.
I am particularly grateful for the fact-finding efforts of Mr. Otis Smith of the Office of Florida State Comptroller in Tallahassee. Without his valuable assistance, this report could not have been completed. In addition to Mr. Smith, my sources included:
Bonita Springs Fire Control & Rescue District
Broward County Fire And Rescue Department
Broward County Property Appraiser
Cape Coral City Budget Department
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Charlotte County Fire & Rescue
Charlotte County Property Appraiser
Miami-Dade Fire and Rescue (formerly Metro-Dade Fire & Rescue)
Miami-Dade Property Appraiser
Fort Myers City Office Of Management & Budget
Fort Myers Fire Department
Fort Myers News-Press
Hillsborough County Fire & Rescue
Hillsborough County Office of Budget
Lee County Clerk of The Circuit Court
Lee County Law Library
Lee County Office of Manager (formerly County Administrator)
Lee County Supervisor of Elections
Lee County Tax Collector
Orange County Fire & Rescue
Orange County Property Appraiser
Orlando Sentinel
Palm Beach County Fire & Rescue
Palm Beach County Property Appraiser
(Palm Beach) Sun Sentinel
Sarasota County Fire & Rescue
Sarasota County Property Appraiser
Former Chief Rick Fulwider of Cedar Hammock Fire Control District
Chief Gerald Adema of Iona-McGregor Fire Protection & Rescue Service District
Former Chief Tom Zepp of South Trail Fire Protection & Rescue Service District
Chief Greg Bradley of Tice Fire Protection & Rescue Service District
Mr. Lee Evett, Town Manager of Jupiter
ISO – Insurance Services Office
Respectfully Submitted,
Brian R. Juntikka
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IN LEE COUNTY
Fire protection organization and structure in Lee County, Florida is typical of almost every area in The United States today when taking the following into account:
(a.) IT IS A COMMUNITY ORGANIZED, OWNED AND CONTROLLED FUNCTION
There are nineteen separate communities in Lee County, Florida. Independent special taxing districts provide fire protection and rescue service to seventeen communities in Lee County while two city governments (Cape Coral and Fort Myers) provide these services within their corporate boundaries. Since the voters within each community elect both fire district and city governing boards, the public has complete local control over their local fire department. This situation is typical of fire department organization in the northeast and Midwestern states where community fire protection is a service of the city, village, borough or township.
(b.) MOST FIRE DEPARTMENTS BEGAN AS DONATION SUPPORTED VOLUNTEER COMPANIES.
The first organized fire department in Lee County was the Town of Fort Myers Fire Department (now City of Fort Myers), which organized as a volunteer company in 1901. By the 1940’s, volunteer fire companies were established by the citizens of Boca Grande as well as Fort Myers Beach and North Fort Myers. During the 1950’s and early 1960’s, the citizens of Matlacha and Pine Island, Bonita Springs, Sanibel Island, Captiva Island, Cape Coral and Lehigh Acres organized additional volunteer fire companies.
After the Cuban Missile Crisis of 1962, the federal government began to question the fire defense capabilities of the states in time of national emergency. Florida became one of eight pilot states in a federal program known as the Rural Fire Defense, or “RFD” program. Its purpose was to strengthen the fire defenses of existing rural fire departments and to assist in the organization of new volunteer fire companies in communities that had no protection. In Florida, the Florida Forest Service – now known as the Florida Division of Forestry, administered this program. That state agency assisted the citizens of Alva, Bayshore, Estero, Fort Myers Shores, Iona-McGregor, San Carlos Park and South Trail in organizing their own volunteer fire companies in 1964 and 1965.
From 1945 until 1971, Lee County paid the City of Fort Myers to provide county fire control service to unincorporated areas. The Tice Fire Department was organized as a
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county fire station in September of 1971 when disagreements over money between the City of Fort Myers and Lee County caused the Fort Myers Fire Department to cease service to that community. In 1976, the voters of Tice approved a special act of the Florida Legislature creating an independent special fire control district.
(c.) THERE IS AN OLDER CENTRAL-CITY FIRE DEPARTMENT SURROUNDED BY NEWER SUBURBAN FIRE DEPARTMENTS LOCATED IN COMMUNITIES AROUND THE OLDER CENTRAL CITY AREA.
As previously stated, the City of Fort Myers Fire Department is the oldest organized fire department in Lee County. As was the case in most of post World War Two America, suburban growth alone created the demand for better fire protection in these areas.
(d.) THE AREA FIRE DEPARTMENTS WORK TOGETHER UNDER MUTUAL AID AGREEMENTS.
Realizing that no single fire department – here or anywhere else – is staffed or equipped to handle 100% of all emergencies that happen, the area fire departments are contracted together with mutual aid inter-local agreements. These inter-local agreements provide for assistance from other fire departments when needed in an emergency, without charge. In recent years, the concept of mutual aid has been greatly expanded to the end that all fire departments in Lee County can effectively operate as a single department when the need arises. The concept of “automatic mutual aid” is currently being expanded.
The State of Florida differs from northeastern and Midwestern states in that civil township government does not exist here. Towns do exist in Florida but they are incorporated municipalities – not to be confused with townships as they exist in the northeast and Midwest.
Florida is divided by general law into sixty-seven counties. Any additional local government (municipalities, independent special districts) exists by special acts of The Legislature and approval by the voters living within the boundaries of these governments. Special District governments are created to provide municipal and other specific purpose services to the citizens who live within their boundaries. Fire Control Districts are typical of this, however, there are two different types of special district governments in Florida:
(a.) DEPENDENT SPECIAL DISTRICTS: These are special districts created and
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controlled by county government. The Board of County Commissioners are the governing body of the district, however, the county commissioners may appoint an advisory board to assist the county in its oversight of district affairs and business. Local examples of dependent districts include the Lee County Law Library, various street lighting taxing units, and numerous municipal service taxing units (MSTUs). Since dependent special districts and MSTUs are functions of the county government, they are subject to such policy, administration and taxation as is handed down by rule of the County Commissioners through the Office of County Manager and other appropriate department heads within the county government organizational structure.
(b.) INDEPENDENT SPECIAL DISTRICTS These are special districts created by special act of the Florida Legislature and a majority vote of the citizens who reside in the area proposed to be included in the district. They are called independent districts because they exist and operate independently of county government. Instead of being controlled by county commissioners, the independent special districts are controlled by an elected board of citizens who reside in the district. The seventeen fire control districts in Lee County are independent special districts.
The independent special fire control districts in Lee County were created by individual special acts of The Florida Legislature. Previous to 1965, that was the only option available to an unincorporated community if taxing authority was needed to support a local fire department. The fire control districts created during that era were:
Boca Grande Fire Control District – Chapter 22372, Laws of Florida 1943
Fort Myers Beach Fire Control District – Chapter 27676, Laws of Florida 1951
North Ft. Myers Fire Control District – Chapter 30925, Laws of Florida 1955
Captiva Island Fire Control District – Chapter 30929, Laws of Florida 1955
Sanibel Island Fire Control District – Chapter 30930, Laws of Florida 1955
*Cape Coral Fire Control District – Chapter 63-1537, Laws of Florida 1963
Lehigh Acres Fire Control District – Chapter 63-1546, Laws of Florida 1963
Mat’lacha-Pine Island Fire Control District – Chapter 63-1558, Laws of Florida 1963
Bonita Springs Fire Control District – Chapter 65-1828, Laws of Florida 1965.
*NOTE: The Cape Coral Fire Control District was abolished and its assets and liabilities transferred to the City of Cape Coral in 1971. This move was approved by the Florida Legislature in Chapter 71-736, Laws of Florida, approved by the board of commissioners
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of the fire district, approved by the Cape Coral city council and by a majority vote of fire district electors who decided the question at a special referendum election held for that purpose.
COUNTY HOME RULE – In 1965, the Florida Legislature enacted Chapter 65-1821, Laws of Florida, granting limited powers of local self-government to the Lee County Commissioners. This statute became known as the Home Rule Law and was approved by county voters at a referendum held later that year. Among other provisions, the new home rule law allowed county commissioners to create dependent special districts by simple county ordinance – with a referendum required if the district were to have taxing authority.
The only dependent special fire control district that ever existed in Lee County pursuant to this act was the former South Trail Fire Control And Rescue District Of Lee County – predecessor of the present-day independent South Trail Fire Protection And Rescue Service District. Created by county ordinance in 1970, this unit replaced the former South Trail Volunteer Fire Department. Voters in the South Trail community approved creation of the new district by referendum that year and the county commissioners appointed an advisory board to assist the county in the operation of the district.
Due to a restructuring of county government in 1972, the limited authority of the fire district advisory board was almost completely diluted. A newly created county Division of Protective Services assumed control of the South Trail department on October 1, 1972. That event and others prepared the way for additional independent fire control districts by mid-decade.
MOVEMENT TO CONSOLIDATE – In late 1972, The Lee County Administrator instructed the Director of the Division of Protective Services to draft a plan for the consolidation of all fire departments in Lee County into a single county owned and operated agency. When the existence of the plan was discovered by area fire departments in the spring of 1973, a political firestorm erupted, causing the Division Director to resign his post. Not long afterward, the County Attorney learned that the county government had no authority over the independent special fire control districts whatsoever and the matter was dropped.
The 1974 Florida Legislature enacted a number of laws dealing with the long burning issue of dual taxation – (city residents paying for county services not used.) These new laws permitted counties to create a new type of dependent special taxing district called a Municipal Service Taxing Unit or “MSTU” as these came to be known. But unlike dependent special districts, an MSTU could be created by county ordinance with taxing authority – without a referendum vote of the people affected.
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With a new Protective Services Division director, the county government used these new laws to create a fire protection MSTU to cover the volunteer fire areas of Alva, Bayshore, Fort Myers Shores, San Carlos Park, Estero and Iona-McGregor in 1975. Another fire protection MSTU was created to serve the community of Tice at the same time. From the time the City of Fort Myers Fire Department discontinued service to the Tice area in October 1971, taxpayers countywide had been supporting the county fire station in Tice through general county taxes.
IONA-McGREGOR – By March of 1975, the members of the Iona-McGregor Volunteer Fire Department and concerned civic leaders in that community saw the county fire protection MSTU as a threat to the local control of their fire department. Donation supported since its organization in 1965, the Iona-McGregor Volunteer Fire Department’s service area included some of the highest property values in suburban Fort Myers. It became clear to both fire and civic leaders that the community’s tax base was to be plundered by those in county government seeking to create a new county fire department. An independent special fire control district was the only solution.
Despite strong opposition from various county governmental factions, the Florida Legislature enacted Chapter 75-421, Laws of Florida that June, creating the Iona-McGregor Fire Protection And Rescue Service District – subject to a referendum.
On November 4, 1975, Iona-McGregor voters decided by a lopsided 2649 “yes” to 301 “no” vote margin to approve creation of the district.
Local public support of the Iona-McGregor Volunteer Fire Department played a major role in the district’s success in that referendum, but another major factor involved the county fire MSTU tax bill that arrived less than a week before the referendum was held. The county commissioners imposed a ¾ mill fire tax on the area – without a referendum. In addition, of the $109,000 that tax levy generated in the Iona-McGregor community, only $47,000 was to be spent there. The remaining $62,000 was taken to support the county fire station in Tice. Iona-McGregor taxpayers were incensed by this and voted accordingly.
NEW DISTRICTS END COUNTY FIRE SYSTEM – Without the Iona-McGregor fire taxing base to support it, a county fire system was no longer possible without increasing the MSTU tax millage rate from 0.75 to 1.332 mills. In the spring of 1976, the remaining volunteer fire companies in Alva, Bayshore, Estero, Fort Myers Shores and San Carlos Park all petitioned the Florida Legislature for independent special fire control districts. When county commissioners learned of this, they decided to divest themselves of the two fire departments they owned and operated – South Trail and Tice. Legislation was soon drafted for these two communities as well.
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In the September 1976 primary election, voters in those communities overwhelmingly approved the creation of independent special fire control districts. They were:
Estero Fire Protection & Rescue Service District – Chapter 76-408, Laws of Florida 1976 by a 207 “yes” to 61 “no” popular vote.
Ft. Myers Shores Fire Protection & Rescue Service District – Chapter 76-409, Laws of Florida 1976 by a 649 “yes” to 390 “no” popular vote.
Tice Fire Protection & Rescue Service District – Chapter 76-410, Laws of Florida 1976 by a 1,095 “yes” to 809 “no” popular vote.
San Carlos Park Fire Protection & Rescue Service District – Chapter 76-411, Laws of Florida 1976 by a 359 “yes” to 96 “no” popular vote.
South Trail Fire Protection & Rescue Service District – Chapter 76-412, Laws of Florida 1976 by a 1,509 “yes” to 533 “no” popular vote.
Alva Fire Protection & Rescue Service District – Chapter 76-413, Laws of Florida 1976 by a 276 “yes” to 101 “no” popular vote.
Bayshore Fire Protection & Rescue Service District – Chapter 76-414, Laws of Florida 1976 by a 358 “yes” to 112 “no” popular vote.
The major difference between the fire control districts created prior to 1966 and those created in the mid 1970s had much to do about money and power. The pre-1966 districts were created as independent entities because that was the only option available to them at the time. The independent special fire control districts created in the mid 1970s were created as such to keep control of both the local fire departments as well as fire tax monies within the community.
In 1989, the Florida Legislature enacted Chapter 89-478, Laws of Florida, creating the Upper Captiva Island Fire Control District, which was also approved by the voters living there later that year.
THE FIRE DISTRICTS TODAY
In the thirty years that have passed since the last populated areas of Lee County were incorporated into special fire districts, much has changed.
FULLY PAID CAREER DEPARTMENTS: - The continuing urbanization of the Bonita Springs, Estero, San Carlos Park, South Trail, Iona-McGregor, Tice, Fort Myers Shores and North Fort Myers districts required the change from mostly volunteer to fully paid status. They joined the Fort Myers Beach and Lehigh Acres districts – and the Fort Myers and Cape Coral Fire Departments, which were already fully paid departments in 1976. The districts of Alva, Bayshore, Boca Grande, Captiva Island, Matlacha-Pine Island, Sanibel Island and Upper Captiva Island are part-paid/part-volunteer departments.
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EMERGENCY MEDICIAL SYSTEM: - Fort Myers Beach and Lehigh Acres districts provide a fully paramedic ALS (Advanced Life Support) ambulance service within their boundaries. ALS Ambulance service in all other communities is provided by Lee County Emergency Medical Services. The city and fire district departments work with Lee County EMS in a number of ways:
(1.) – Lee County EMS vehicles and personnel are routinely housed in fire stations – saving county taxpayers from the burden of having to build separate accommodations.
(2.) – All fire district and city fire departments provide Rescue Service. This includes heavy rescue operations such as extrication from wrecked vehicles, emergency evacuation activities as coordinated with other fire districts, the county and the state, and varying degrees of emergency medical services to save lives and to assist the paramedics of Lee County EMS.
BASIC LIFE SUPPORT (BLS) In Alva, Bayshore, Boca Grande, Captiva, Fort Myers Shores, Matlacha-Pine Island, Tice and Upper Captiva Island, fire district Emergency Medical Technicians provide this service.
ADVANCED LIFE SUPPORT (ALS) In Bonita Springs, City of Cape Coral, Estero, City of Fort Myers, Iona-McGregor, North Fort Myers, San Carlos Park, Sanibel and South Trail, fire district/fire department Paramedics provide this service. Fort Myers Beach and Lehigh Acres also provide ambulance service.
ENHANCED 911 EMERGENCY REPORTING: Thirty years ago, dispatchers at the separate fire districts and departments handled emergency telephone calls. In 1986, Lee County, the cities and fire districts adopted the Enhanced 911 Emergency Telephone Number. While the concept of the 911 emergency reporting telephone number had been around since 1968, ours was one of the very first areas in The United States to have the Enhanced 911 system. With Enhanced 911, telephone company digital switching equipment provides emergency dispatchers with vital information such as the caller’s location, serving fire district and law enforcement agency and telephone number.
FIRE AND BUILDING CODES: The Lee County Commissioners enacted the first fire safety codes in 1974 but chose not to enforce them. The Florida Legislature authorized the fire control districts to enact fire safety rules and regulations – some of them with the same fire safety ordinances as those adopted by the county and to enforce the same by civil injunction. Although county commissioners initially authorized the fire districts to enforce the county’s fire prevention codes in 1978, complaints from builders and
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developers caused the county commissioners to revoke this authorization in 1979. When that happened, the elected commissioners in a number of districts began to enact and enforce their own safety codes and regulations. A uniform fire prevention code was finally adopted by ordinance and by inter-local agreement between the fire districts and Lee County in 1984. It brought the fire districts into the development review process and it has worked reasonably well ever since.
MASS PURCHASING: In a cooperative effort to save tax dollars, the fire districts organized a mass purchasing association in order to receive quantity discount on major and minor purchases.
FLORIDA USAR TASK FORCE SIX (URBAN SEARCH AND RECOVERY):
The fire districts in Bonita Springs, Estero, Fort Myers Beach, San Carlos Park, South Trail, Iona-McGregor and the Lee County Division of Public Safety created USAR TASK FORCE SIX – (FL-TF 6) - a unit of some 73 specially trained fire fighters, emergency medical technicians and paramedics to search for and rescue victims of natural or man made disasters. This includes rescue from collapsed structures, pre-hospital emergency care and treatment of disaster victims, rope rescue, swift water rescue, confined space rescue, trench rescue and similar situations.
It’s first major local response was for Hurricane Charley in August of 2004 – searching for victims on the offshore islands three days before FEMA teams arrived in Lee County for the same purpose. During the aftermath of Hurricane Katrina, USAR TASK FORCE SIX did not deploy but was the only USAR team available for emergency response and was on stand-by for the remainder of Florida as well as the states of Virginia, West Virginia, North Carolina, South Carolina, Georgia, and Alabama.
In as much as this function is a unique and a highly specialized one, it is not necessary that each area fire district or department participate in this operation. USAR Task Force Six will deploy whenever and wherever needed.
HAZARDOUS MATERIALS (HAZ-MAT): - Just as USAR is a highly specialized function, so too is the handling of hazardous materials in emergencies. In Lee County, The Fort Myers Fire Department provides this service. While they are assisted by the other area districts and departments, it is not necessary to duplicate this effort on a countywide basis.
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DISASTER AND EMERGENCY PLANNING: - The duties and responsibilities of all U.S. fire departments were changed forever on September 11, 2001. In Florida, however, calamity struck in August of 1992 with Hurricane Andrew. The problems and mistakes made during and after the storm in Miami-Dade County have been studied with much scrutiny ever since so that they could be avoided in future major emergencies.
Starting in 1996, the fire districts in Lee County began to deploy personnel and equipment to other Florida communities hit by hurricanes – so that actual “hands on” experience in these situations could be had. The Florida Fire Chief’s Association coordinates the deployment of personnel and equipment. By the time Hurricane Charley hit Southwest Florida in August of 2004, these pre-planning efforts paid off. The fire districts were able to handle their duties during and after the storm without the need to call for assistance from other counties. The same was true a year later when Hurricane Wilma wrecked havoc.
As new district fire stations are added to accommodate growth, they are constructed to withstand hurricane force winds and to serve multiple emergency purposes.
FLORIDA FIRE JOBS: The growth in population and development in the more urbanized districts creates the need for additional fire stations and equipment. That growth and development also creates the need for additional fire fighters and paramedics. In August of 2001, the fire districts of Bonita Springs, Estero, Fort Myers Beach, Iona-McGregor, Lehigh Acres, Matlacha-Pine Island, North Fort Myers, San Carlos Park, Sanibel and South Trail together with the City of Cape Coral Fire Department and the Lee County Port Authority created The Employment Testing Cooperative of Southwest Florida - an applicant screening and testing program. By doing this, a better selection of candidates can be had to fill these positions as they become available.
NEW STATIONS & EQUIPMENT - In 1976, the fire districts in Lee County owned and operated 17 fire stations. By 1996, that number increased to 35 stations and today that number is 42 stations with more on the way as growth and development continues.
These numbers do not include the City of Cape Coral’s 7 fire stations and the City of Fort Myers, which owns and operates 5 stations. It also does not include the Lee County Port Authority Fire and Rescue stations at Page Field and Southwest International Airports.
New ISO rated fire apparatus and equipment have replaced the second hand and government surplus fire trucks, which served the public for many years. The cost of new fire engines and equipment is always high, however, it is worth the expense from the
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standpoint of fire fighter safety and reliability. It is also a requirement of the Insurance Services Office (ISO) in order to reap any benefits providing lower and better fire insurance rates to the public.
THE INSURANCE SERVICES OFFICE – (I.S.O.)
The I.S.O. is an independent and non-political organization that serves the insurance industry. This is the agency that actually inspects and rates a community’s fire defenses – here in Florida and in 44 other states as well. These ratings are called the “Public Protection Classification” or “PPC” for short.
The PPC program recognizes the efforts of communities to provide fire-protection services for citizens and property owners. A community's investment in fire mitigation is a proven and reliable predicator of future fire losses. So insurance companies use PPC information to help establish fair premiums for fire insurance — generally offering lower premiums in communities with better protection. By offering economic benefits for communities that invest in their firefighting services, the program provides a real incentive for improving and maintaining public fire protection.
The program also provides help for fire departments and other public officials as they plan for, budget, and justify improvements.
But the most significant benefit of the PPC program is its effect on losses. Statistical data on insurance losses bears out the relationship between excellent fire protection — as measured by the PPC program — and low fire losses. By helping communities prepare to fight fires effectively, ISO's PPC program saves lives.
I.S.O. INSURANCE RATINGS – Each community’s fire defenses are graded using a point system to consider the following:
(1.) – THE FIRE DEPARTMENT: - A review of the fire department accounts for 50% of the total classification. ISO focuses on a fire department's first-alarm response and initial attack to minimize potential loss. Here, ISO reviews such items as engine companies, ladder or service companies, distribution of fire stations and fire companies, equipment carried on apparatus, pumping capacity, reserve apparatus, department personnel, and training.
(2.)
- FIRE ALARM AND COMMUNICATIONS SYSTEM:
A review of the fire alarm system accounts for 10% of the total
classification. The review focuses on the community's facilities and support
for handling and dispatching fire alarms.
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(3.) – THE WATER SUPPLY: A review of the water-supply system accounts for 40% of the total classification. ISO reviews the water supply a community uses to determine the adequacy for fire-suppression purposes. They also consider hydrant size, type, and installation, as well as the inspection frequency and condition of fire hydrants.
Generally, property located within five road miles of a fire station and within 1,000 feet of an approved fire hydrant benefit by paying lower and better fire insurance premiums.
After a community’s fire defenses are inspected by the I.S.O., the community is “rated” and given a Public Protection Classification number – ranging from Class 1 to Class 10.
Fire insurance companies use these I.S.O. protection classification ratings to determine the risk and the premiums their customers pay. On a scale of 1 to 10, a Class 1 community has the best fire protection possible, while a Class 10 community has no fire protection at all. Therefore, a homeowner’s insurance policy costs a lot more in a Class 10 community than the same policy would cost in a Class 1 community.
As a practical note, there are only five cities in Florida with a class 1 rating: They are Apopka, Hialeah, Hollywood, Coral Gables and Pembroke Pines. It should also be noted that if a community does not have an approved water system, a poor class 9 rating is the best that can be had – even if the fire department otherwise qualifies for a better rating.
Community 1976 ISO Rating 2006 ISO Rating
Alva Class 10 Class 9 (no water system)
Bayshore Class 10 Class 4
Boca Grande Class 8 Class 5
Bonita Springs Class 10 Class 4
Cape Coral Class 8 Class 4 Improvements in fire protection over the
Captiva Class 10 Class 5 past 30 years have lead to lower and
Estero Class 10 Class 4 better fire insurance ratings for residents
Fort Myers Class 6 Class 3 of Lee County. These improvements
Fort Myers Beach Class 8 Class 4 included additional fire stations and
Fort Myers Shores Class 10 Class 4 equipment, the addition of more full-
Iona-McGregor Class 9-AA Class 4 time paid staffing, improvements made
Lehigh Acres Class 8 Class 4 to area water systems and the activation
Matlacha-Pine Island Class 10 Class 6 of the enhanced 911 emergency
North Fort Myers Class 8 Class 6 reporting telephone number.
San Carlos Park Class 10 Class 3
Sanibel Class 10 Class 6
South Trail Class 8 Class 4
Tice Class 8 Class 4
Upper Captiva Class 10 Class 8
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Chapter Two
A complete review of actual services provided, taxing rates and assessments, relative annual cost-per-station amounts, ISO community fire insurance ratings and budget/expenditure growth over the past 30 fiscal years.
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BUDGET GROWTH
In this chapter, the taxing rates, budgets and/or actual expenditures, annual cost-per-station analysis and I.S.O. fire insurance ratings will be discussed. The fire and rescue departments included within this report are as follows:
(a.) – Broward County Fire & Rescue
(b.) – City of Cape Coral Fire & Rescue
(c.) - Charlotte County Fire & Rescue
(d.) – Miami-Dade Fire & Rescue (formerly Metro Dade Fire & Rescue)
(e.) – City of Fort Myers Fire & Rescue
(f.) – Hillsborough County Fire & Rescue
(g.) – Lee County Emergency Medical Services (formerly Lee County Ambulance)
(h.) – Lee County Fire Control as a budgeted item
(i.) – The Independent Fire Control Districts in Lee County
(j.) – Orange County Fire & Rescue
(k.) – Palm Beach County Fire & Rescue
(l.) – Sarasota County Fire & Rescue
TAXING RATES – there are two different types of fire protection and EMS taxing systems used in this report:
(1.) – TAX MILLAGE: An ad valorem millage levy based upon the VALUE of property. One mill equals $1.00 of tax for every $1,000 of value.
(2.) – SPECIAL ASSESSMENTS: A flat-fee levy based upon the TYPE of property. Usually this is calculated by square foot or by acre.
Tax millages apply in Lee County, Hillsborough County, Orange County, Dade County, Palm Beach County and for EMS in Sarasota County. Special assessments apply for fire protection in Broward County, Charlotte County and Sarasota County.
BUDGETS AND/OR EXPENDITURES – A review of all available figures for the past thirty fiscal years. Most figures from the Office of Florida State Comptroller, which show monies actually spent.
COST-PER-STATION ANALYSIS – Annual cost-per-station figures consider the entire fire-rescue annual budget or tax levy and divide this amount by the number of fire stations actually delivering service to the public.
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BROWARD COUNTY FIRE & RESCUE
ORGANIZATION: County owned and operated fire/rescue department which serves a limited area of unincorporated Broward County and six incorporated places by inter-local agreement: Incorporated areas include the cities of Cocoanut Creek, Cooper City, Lauderdale By The Sea, Sea Ranch Lakes and Weston. The remaining 24 incorporated municipalities in Broward County own and operate their own fire departments.
Broward County is different than most other areas of fire control study in that the overwhelming majority of county residents live within the boundaries of a city or town.
Prior to fiscal year 1977-1978, fire protection in the urbanized unincorporated area of Broward County was provided by numerous volunteer fire departments – all funded through a single independent special district known as Broward Fire Control. The Florida Legislature abolished the district in 1978 and transferred its assets and liabilities to the government of Broward County. On October 1, 2003, the County Commission turned Broward Fire & Rescue over to the Broward County Sheriff’s Office and it has been operated as a division of that entity ever since.
Broward Fire Rescue is a fully paid career department.
2005-2006 FIRE BUDGET: $55,104,100.00 fire suppression and rescue service*
2005-2006 EMS BUDGET: none shown
2005-2006 FIRE SPECIAL ASSESMENT RATES:
$195.00 per single-family dwelling unit
$185.00 per multi-family dwelling unit
28.7 cents per square foot for business and commercial properties
2.8 cents per square foot for warehouse and industrial properties
10.1 cents per square foot for institutional properties
$8.00 per vacant subdivided lot
$24.00 per acre for un-subdivided acreage
ASSESSMENTS APPROVED BY VOTERS? No – approved by County Commission.
NUMBER OF FIRE STATIONS: 16
COST PER STATION: $3,444,006.20
ISO RATING: Protection Class 3 with hydrants on approved water system.
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FISCAL YEAR FIRE EMS
1976-1977 445,297 1,790,205
1977-1978 597,008 unknown
1978-1979 1,929,201 4,502,564 *Note: These figures do not include
1979-1980 3,761,916 4,914,545 amounts spent on countywide fire
1980-1981 2,472,531 7,326,870 and rescue associated services. These
1981-1982 2,735,702 7,801,746 include logistics, air rescue, specialized
1982-1983 3,445,000 8,767,000 services administration (Haz-Mat, etc)
1983-1984 4,973,000 10,716,000 and communications.
1984-1985 6,006,000 12,498,000
1985-1986 6,645,000 13,427,000
1986-1987 8,444,000 14,296,000
1987-1988 10,024,000 17,055,000
1988-1989 9,694,000 15,506,000
1989-1990 8,978,000 20,939,000
1990-1991 10,144,000 22,642,000
1991-1992 13,925,000 unknown
1992-1993 11,284,000 24,413,000
1993-1994 12,298,000 27,423,000
1994-1995 13,588,000 30,367,000
1995-1996 14,081,000 33,250,000
1996-1997 17,323,000 27,279,000
1997-1998 15,439,000 26,430,000
1998-1999 17,213,000 28,101,000
1999-2000 20,072,000 28,809,000
2000-2001 20,217,000 28,119,000
2001-2002 20,311,000 30,388,000
2002-2003 21,647,000 34,529,000
2003-2004 50,567,610 FIRE & EMS COMBINED**
2004-2005 47,555,780 FIRE & EMS COMBINED**
2005-2006 55,104,000 FIRE & EMS COMBINED**
**Note: Figures from Broward County Department of Elected Officials. All others from
the Office of Florida State Comptroller.
CHARLOTTE COUNTY FIRE RESCUE
ORGANIZATION: - County owned and operated fire-rescue department serving Charlotte County, less and except within the City of Punta Gorda, the Boca Grande Fire Control District and the Englewood Area Fire Control District.
2005-2006 FIRE BUDGET: $31,048,502.00 Charlotte Co Budget Dept
2005-2006 EMS BUDGET: $11,910,904.00 Charlotte Co Budget Dept
$42,959,406.00 total
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2005-2006 FIRE TAXING RATES:
$136.40 per residence
16 cents per square foot for business & commercial with
a minimum of 1,300 square feet ($208.00).
$58.12 per acre for commercial acreage.
$29.06 per acre in developed areas fronting a roadway.
$1.18 per acre for rural acreage not fronting a roadway.
2005-2006 EMS TAXING RATES: - Not available because countywide ad valorum tax revenue plus user fees support it.
TAXING RATES APPROVED BY VOTERS? No – approved by county commissioners.
NUMBER OF FIRE STATIONS: 11
RELATIVE COST-PER-STATION THIS FISCAL YEAR: $3,905,400.50
I.S.O. INSURANCE RATING: Class 4 in areas with hydrants on approved water systems and class 9 and 10 in all others.
Previous to 1985-1986, fire protection was provided by a number of special districts, to wit:
Port Charlotte-Charlotte Harbor Fire Control District (independent)
Charlotte County South Fire Control District (independent)
Harbour Heights Fire Control District (independent)
In addition, the government of Charlotte County operated three county-dependent districts of its own:
Alligator Creek Fire District
East Charlotte Fire District
El Jobean – Gulf Cove Fire District.
In 1986, all fire districts except Harbour Heights were merged into a new county controlled agency called Charlotte County Fire & Rescue. In 1991, Harbour Heights Fire Control District was abolished and merged with the county fire and rescue department.
FISCAL YEAR CO FIRE IND. DISTRICT FIRE FIRE TOTAL CO EMS
1976-1977 161,447 118,700 280,147 43,399
1977-1978 70,310 149,774 220,084 46,246
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1978-1979 144,583 302,179 446,762 117,420
1979-1980 150,249 612,025 762,274 60,000
1980-1981 339,590 807,729 1,147,319 128,418
1981-1982 432,421 882,099 1,314,520 828,616
1982-1983 739,780 850,058 1,589,838 888,749
1983-1984 501,559 1,030,281 1,531,840 982,332
1984-1985 659,731 1,210,797 1,870,528 1,076,623
1985-1986 174,332 1,405,047 1,579,379 1,544,312
1986-1987 2,167,339 339,619 2,506,958 1,623,500
1987-1988 3,032,021 135,227 3,167,248 1,729,046
1988-1989 2,960,488 206,854 3,167,342 2,540,329
1989-1990 4,129,414 293,880 4,423,294 2,480,640
1990-1991 4,597,941 352,475 4,950,416 3,171,640
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ORGANIZATION: - A county-dependent special district of Dade County since 1957, this department serves unincorporated Miami-Dade County plus twenty-one of the total twenty-six municipalities within the county. The cities of Miami, Miami Beach, Hialeah, Coral Gables and the Village Of Key Biscayne own and operate their own fire and rescue departments. Miami-Dade County department has ALS and paramedics but does not transport. Private ambulance services are contracted with the county for this service.
2005-2006 BUDGET: $295,056,000.00 per operating tax levy. An additional sum of $15,879,000.00 comes from the general revenue fund of the county for air-rescue, emergency management, etc.
2006-2006 TAXING RATES:
2.6090 mills – normal operating levy
0.0652 mills – debt service
2.6742 mills – total levy
TAX MILLAGE APPROVED BY VOTERS? No – approved by county commissioners.
NUMBER OF FIRE-RESCUE STATIONS: 57
RELATIVE COST PER STATION THIS FISCAL YEAR: $5,176,421.00
I.S.O. FIRE INSURANCE RATING: Class 4 in areas with hydrants.
FISCAL YEAR ACTUALLY SPENT
1976-1977 13,941,003
1977-1978 19,728,421
1978-1979 22,983,000
1979-1980 26,586,000
1980-1981 34,542,000
1981-1982 40,141,000
1982-1983 46,232,000
1983-1984 52,682,000
1984-1985 58,392,000
1985-1986 61,588,000
1986-1987 71,147,000
1987-1988 78,070,000
1988-1989 85,873,000
1989-1990 99,383,000
1990-1991 100,388,000
1991-1992 113,249,000
1992-1993 118,990,000
1993-1994 119,086,000
1994-1995 128,982,941
1995-1996 137,000,000*
1996-1997 144,488,000*
1997-1998 167,776,420
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1998-1999 164,680,702
1999-2000 187,567,931