1994-06-22 Work Session
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MINUTES OF WORK SESSION, JUNE 22, 1994 '
421 NORTH FIRE SERVICE ASSESSMENT
PAGE 165
ASSEMBLY
The New Hanover County Board of Commissioners held a Work
Session with the New Hanover County Board of Fire Commissioners on
, .
Wednesday, June 22, 1994, at 7:00 P.M. In the Assembly Room of the
New Hanover County Courthouse, 24 North Third Street, Wilmington,
North Carolina.
Members present were: Commissioners Sandra Barone; William A.
Caster; William E. sisson, Jr.; Vice-Chairman E. L. Mathews, Jr.;
Chairman Robert G. Greer; County Manager, Allen 0' Neal; County
Attorney, Wanda M. Copley; and Clerk to the Board, Lucie F.
Harrell.
Chairman Greer called the meeting to order and welcomed
everyone present. He announced that before holding the Work
Session for the purpose of discussing fire protection for the
Highway 421 North corridor, the Board needs to consider an addendum
to the FY 1994-95 Budget Ordinance.
ADOPTION OF ADDENDUM TO THE FY 1994-95 BUDGET ORDINANCE FOR NEW
HANOVER COUNTY
Chairman Greer reported on June 6, 1994, the Board of County
Commissioners adopted the FY 1994-95 Budget Ordinance and at a
regular meeting held on June 20, 1994, the Board of County
Commissioners voted unanimously to approve merit increases for the
County Manager at 5%, the County Attorney at 7%, the Clerk to the
Board at 5%, and a 3% increase to the base pay for the County
Commissioners. The approved increases and benefits for the
Commissioners and appointees will not increase the total of the
1994-1995 New Hanover County budget; however, an addendum to the
Budget Ordinance is required since the increases were approved
after the Budget Ordinance was adopted on June 6, 1994.
Motion: vice-Chairman Mathews MOVED, SECONDED by Commissioner
Sisson-to adopt the addendum to the New Hanover County FY 1994-95
Budget Ordinance. Upon vote, the MOTION CARRIED UNANIMOUSLY.
A copy of the addendum is hereby incorporated as a part of the
minutes and is contained in Exhibit Book XXII, Page 13.
DISCUSSION OF THE HIGHWAY 421 NORTH CORRIDOR FIRE PROTECTION
ASSESSMENT
Chairman Greer reported the purpose of the Work Session is to
discuss and receive input from the members of the Fire Commission
on the fire protection study of the Highway 421 North corridor
prepared by Emergency Response Planning and- Management. He
welcomed Mr. Dennis Moffett and Mr. Mark Scott, the consultants who
prepared the report.
Mr. Dennis Moffett reported Emergency Response and Planning
Management, Inc. was hired to review fire protection for the
Highway 421 North corridor. An interview process and a drive-
through site inspection process beg~n with a review of the most
unique and largest commercial facilities in the area. sixteen
major industries, fifty-nine commercial enterprises, and
approximately 40 single family home residences were identified. One
hundred sixty hazardous materials were identified. Eleven
facilities were broken down into large, moderate, and minimal fire
load hazardous materials, associated risks, and response
capabilities based upon the fire load. Seven of the .eleven
facilities contained large fire loads, and most of the facilities
had high to moderate risk involved. Based upon this analysis and
interviews with fire officials in the County, it was determined
that the following approaches could be followed to provide adequate
fire protection and mitigate the type of problem that occurred in
the North Wilmington Fire District:
1. Establish at the County government level a County Fire
Administrato~ to oversee, monitor, and evaluate the effectiveness
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MINUTES OF WORK SESSION, JUNE 22, 1994
421 NORTH FIRE SERVICE ASSESSMENT
PAGE 166
and efficiency of all County fire services county-wide. This
person would work with the volunteer fire department personnel on
a daily basis; plan fire service programs for the County; develop
training standards; provide county-wide SOP's for the Volunteer
Fire Departments; establish standards for equipment purchases, and
initiate and follow through ISO requirements relative to each
Volunteer Fire Department.
2. Develop a cadr~ of professional, career paid firemen under the
following options:
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(al Twenty-one full time fire ,fighters working 4-man crews,
24 hours per day, 365 days per year.
Cost: $2.2 million over a 3-year implementation period.
(bl Fourteen fire fighters, working 4-man crews during the
day with 2-man crews during the night and on weekends, 365
days per year.
Cost: $1.66 million over a 3-year implementation period.
(cl Eleven full time fire fighters working 2-man crews with
backup volunteer support, 24 hours per day, 365 days per year.
Cost: $1.4 million over a 3-year implementation period.
All of the above options would require an increase in the
levels of support from the Volunteer Fire Departments, and the
equipment levels would be the same. The County would retain the
county-wide hazardous materials emergency response contract with
the City of Wilmington Fire Department for all three options. The
Fire Administrator position would have to be established and the
associated cost has been includ~d in each option.
The suggested implementation strategy would begin with 11 fire
fighters in year one progressing to 14 fire fighters in year two,
and 21 fire fighters in year three at a cost of $1.6 million over
a 3-year, period of time.-
In summary, New Hanover County has a unique fire hazard in
this particular area of the County because of the major industries
and commercial centers located along this corridor as well as the
38 single-family dwellings.
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Chairman Greer inquired as to whether anyone present would
like to comment. The following remarks were received:
Mr. Gary Rowe, representing the winter Park
Department and currently serving as Chairman
Commission, introduced the following members
Commission:
Volunteer. Fire
of the Fire
of the Fire
Mr. James Pittman, Vice-Chairman of the Fire Commission and a
representative of the Ogden Volunteer Fire Department.
Mr. Roger Miller, Secretary of the Fire Commission and a lay
person representing the North Wilmington Corridor.
Mr. Dominic Bianco, Chief of the Castle Hayne Fire Department.
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Mr. Robert Korf, representing the Seagate Volunteer Fire
Department and a retired volunteer fireman from the State of
New York.
Mr. Wayne Hartsell, representing the Myrtle Grove Volunteer
Fire Department.
Mr. James Pittman, representing
Department, presented the following
consultants:
the ogden Volunteer Fire
questions to' the' fire
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MINUTES OF WORK SESSION, JUNE 22, 1994
421 NORTH FIRE SERVICE ASSESSMENT
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(1) What fire officials were consulted with during the
development of the plan as proposed? Mr. Mark Scott responded
that discussion was held with Gary Rowe, Chairman of the Fire
Commission, Mr. Dennis Pinho, Mr. Roger- Miller and
Commissioner william E. Sisson, Jr.
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(2) How was it decided that a Fire Administrator was
absolutely essential in the options presented? l'Ir. Scott
responded that based on the past experience of the Fire
Marshal and overall concept, it was felt a Fire Administrator
was needed to oversee the entire Fire Program in New Hanover
county.
(3) Would a Fire Administrator and Fire Marshal create a
duplication of duties and responsibilities? Mr. Scott
responded that the County's Fire Marshal is basically involved
with building code enforcement; therefore, this position was
recommended so one person would be totally-involved with the
daily operation of the Volunteer Fire Departments.
(4) with the funding of $1.3 millon over a three-year period
for implementation of the options, where would the funds come
from since the fire tax now generates revenue in the amount of
$1.2 million dollars annually? Mr. Scott reported no
determination was made as to how the plan would be funded, and
the Board of County Commissioners would the entity responsible
for making this decision.
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(5) If option 3 was implemented with backup from - the
Volunteer Fire Departments, would the backup be scheduled, or
in the form of mutual aid as currently being done? Mr. Scott
reported the backup would be scheduled personnel on call at a
station.
(6) Do you feel that scheduled volunteer fire fighters
working with paid personnel would create problems? Mr. Scott
responded that this could be a problem.
(7) Why is the Fire Administrator going to be responsible for
establishing training 'standards when this is the duty of NFPA?
Mr. Scott reported NFPA does not establish training standards
on the local level. The recommendation is for establishment
of county-wide training standards for all fire departments.
(8) According to the articles in the local newspaper, the
public has been led to believe that career fire fighters would
automatically reduce ISO ratings which is not true. Is this
statement correct? Mr. Scott reported this is correct and
stated, for the record, as a current volunteer fire fighter,
there is no difference in the training levels and commitment
or professionalism of.a volunteer fire fighter versus a career
fire fighter other than pay.
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(9) Having standard SOP's was recommended; however, all
Volunteer Fire Departments have SOP's to cover any legal
liabilities. Is this a true statement? Mr. Scott reported
this is true, but the purpose of the proposed recommendation
is to establish a county-wide concept to ensure that the
present system is maintained and continued.
(10) If the county decides to implement any option presented
at the estimated cost for each option, won't it be a huge tax
burden to the citizens of the County for establishment of
seven other stations? Mr. Scott responded that the North
Wilmington Fire station is unique and is without volunteer
manpower. If other stations are established with a pool of
volunteers, the cost would be greatly reduced.
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MINUTES OF WORK SESSION, JUNE 22, 1994
421 NORTH FIRE SERVICE ASSESSMENT
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(11) Do you think there would be dissatisfaction from other
homeowners paying the same tax rate for fire coverage with the
North Wilmington area receiving a higher level of protection?
Mr. Scott responded that the study was for the purpose of
preparing options to address the industrial corridor on
Highway 421 North.
commissioner Sisson reported no method of financing has been
agreed upon and, in his opinion, the coverage for this unique area
will not be drawn entirely from the fire district tax. Discussion
has been held on special arrangements for this industrial corridor,
such as special legislation to authorize a special fire district or
other ways for the consumers to pay for the services being
provided. If the County goes to a paid/volunteer system, the
County will have to determine how this system will be funded.
Mr. Pittman, again, expressed concern for the article in the
newspaper which led the public to believe that a paid system will
automatically reduce the ISO ratings and stated the general public
should receive correct information.
Chairman Greer expressed appreciation for the questions being
asked by Mr. Pittman, but urged the members of the Volunteer Fire
Departments and Fire commission to recognize that the study is just
a guide and that no decision has been made.
Mr. Bob Korf, a former volunteer fireman in New York for seven
years, stated the report has not proved to him that millions of
dollars should be expended for fire protection in this area. His
major concern is for the 38 families living in this location.
After reviewing the information listed in the study on the various
industries located on the 421 corridor, it appears most of the
industries have a fire brigade and emergency response team with
only a few companies that need additional protection. After
reading the report, which was well prepared, the County does not
need to spend $1.6 million for additional fire protection to the
industries in this area. In order to protect the 38 families living
in the area, he would recommend placement of two water or pumper
trucks in the. vacant Fire House as part of the Castle Hayne
Volunteer Fire Department. This would provide the necessary
equipment to properly cover these dwellings.
Mr. Dennis J. Pinho, a former member of the County of Los
Angles Fire Department for 20 years, reported the study performed,
if handled correctly, can be a tremendous asset to New Hanover
County. The question to be asked is whether the County has a
responsibility to provide adequate fire protection to the North
Wilmington area. To suggest that industry should be able to
protect itself cannot be viewed accurately because their liability
extends beyond their boundaries. The County must consider the 38
residential dwellings with a natural water boundary between the
City of Wilmington and this area. The response time is of vital
importance; therefore, a paid group of people may be the best way
to provide a quicker response time and allow the firemen to allot
more time for training. As to the hiring a Fire Administrator, the
Board of County Commissioners must decide if this position should
be a county or consultant position. In his opinion, these are the
questions that must be answered before a decision is made by the
Board of County Commissioners.
Mr. Roger Miller, representing the North Wilmington Fire
District, reported the history 'of this area reflects concern for
inadequate fire protection on this industrial corridor. with the
dissolution of the North Wilmington Volunteer Fire Department, this
area is receiving better fire protection with mutual aid from the
Wrightsboro and winter Park Volunteer Fire Departments. However,
the response time is running approximately 15-17 minutes on the
average, which' is poor, and in an emergency is critical. The
method in which to proceed is going to be a difficult decision, and
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MINUTES' OF WORK SESSION, JUNE 22, 1994
421 NORTH FIRE SERVICE ASSESSMENT
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in his opinion, some type of full-time protection is needed which
will require a paid department with the help of volunteer firemen.
Mr. Gary S. Rowe, a member of the Fire Commission, commented
on the training received by volunteer firemen and stated all the
Volunteer Fire Departments currently meet the state and federal
requirements as well as the OSHA requirements. In responding to
the 421 North area, the Volunteer Fire Departments now supplement
the fire brigades at the industrial facilities. These brigades can
handle the initial fire and do not allow the Volunteer Fire
Departments to enter the closed gates until proper authorization is
granted. The difference between the response time for volunteer
firemen and career firemen is approximately four minutes. As to a
County Fire Administrator, the County Commissioners will have to
make this decision; however, the following items are of great
concern to the Volunteer Fire Departments and should be addressed
immediately:
(1) The inability of the Fire Commission to Establish Rules
that are Binding: The County Commissioners were urged to
authorize the Fire Commission to amend the by-laws to allow
the Fire Commission to enact and carry out policies and
procedures.
(2) Reassignment of Duties and Responsibilities of the Fire
Marshal: The Fire Marshal should be reassigned to work
closely with the Volunteer Fire Departments in providing fire
training and administering fire prevention and educational
programs to the community.
In summary, the Volunteer Fire Departments have met the 9S
rating and hopefully this year three or four Volunteer Fire
Departments will drop the ISO ratings to a 5 or 6 classification.
within the past two years, tremendous strides have been made by the
Volunteer Fire Departments in reducing the ISO ratings. If the
County Commissioners consider paid personnel, the Volunteer Fire
Departments would like an arrangement whereby the paid personnel
would be assigned to the Volunteer Fire Departments on this side of
the river working with the Fire Commission to provide fire coverage
to the 421 corridor, which would save money now being paid to the
city of Wilmington Fire Department for contracting these services.'
Chairman Greer inquired as to why paid personnel should be
assigned to this side of the river?
Mr. Rowe reported paid personnel per call should be on this
side of the river to allow for a quicker response to all parts of
the County and also provide the services needed in the North
Wilmington Fire District. As to the consultant's study, he was
quite insulted by the statement that a Fire Administrator would
possibly prevent another North wilmington incident from happening.
Mr. Bob' Mack, Director of Community Affairs with Cape
Industries, commented on being involved with fire protection for a
number of years since the North Wilmington Fire station was located
on the Cape's property. The Cape, along with other industries in
the area, encouraged the performance of the needs assessment study
to become better informed on the degree of fire protection needed ....
for the industrial corridor. since the study has been released,"
the Cape has not been involved in any meetings; however, after a
review of the study, Cape Industries has the following concerns:
(1) The Level of Fire Protection for Hazardous Materials: How
would the options proposed in the study provide any additional
benefits to the industries in this area over the present
levels of service now provided by the two Volunteer Fire
Departments backed up by the City of wilmington Fire
Department? The Cape feels this question has not been
answered in the study.
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MINUTES OF WORK SESSION, JUNE 22, 1994
421 NORTH FIRE SERVICE ASSESSMENT
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(2) An Evaluation of the Value of Response Time: The Cape
would like a study of the value of a. quicker response time.
What is the value of a 12 to 15 minute response time versus a
4 to 5 minute response time in the context of a hazardous
materials incident? Would this difference require the cost
involved with a paid cadre, particularly when the Cape and
other industries have fire brigades? This question was not
completely answered in the study.
(3) Backup Fire Protection: In ten years, the Cape has never
required any assistance for an off-site fire. Again, it is
questionable if a full-time paid cadre of firemen is needed?
In summary, the Cape would like to address these items with
the other industries on Highway 421 North in concert with New
Hanover County, the Volunteer Fire Departments, and the City of
Wilmington. Some industries contract directly with the city of
Wilmington Fire Department; therefore, it was anticipated the study
would include the possibility of the city placing an outreach
station for more fire protection and hazardous materials coverage
on Highway 421 North. The issue at Cape Industries is not
economics, but whether the proposed mousetrap, which is more
expensive, provides more benefits than the old mousetrap. At this
point, Cape Industries has not been able to answer this question.
Chairman Greer expressed appreciation to Mr. Mack for his
remarks and reported the Cape and other industries on the 421
Corridor will be included in the decision making process for the
provision of fire service to this area.
Mr. Mack reported the Cape would like to explore a study on a
total resource availability/capability basis with the city of
Wilmington for additional fire and hazardous materials protection
on the Highway 421 North corridor.
Emergency Management Director, Dan Summers, reported serving
as a liaison to the Board of Fire Commissioners and as the Director
of Emergency -Management, he would like to make a few comments
concerning fire protection for Highway 421 North. New Hanover
County is ranked second -in the State of North Carolina in the
number of fire hazardous materials, which is the reason the County
received a grant for hazardous materials and contingency planning.
Also,. the Superfund Amendments and Reauthorization Act of 1986
mandated New Hanover County to perform contingency planning. The
federal government would not have mandated this requirement without
feeling that major incidents could occur throughout the county.
Although no major incidents have occurred on 421 North, there is an
enormous potential for a major hazardous materials fire. With all
due respect to the industries and their contingency planning, 99%
of hazardous materials incidents can be handled on-site by staff;
however, this area is an island with an environmental impact plus
subsequent fire loads that must be considered in providing fire
protection. The potential risk for a major hazardous materials
incident is there and a quick response time is essentiaL The
County has an excellent mutual aid system, but the County must
prepare for the continued growth of the Highway 421 North corridor
as well as the entire area and implement a plan that will meet this
growth. Benefits may not be gained during the first year if a fire
station is located in North Wilmington; however, a plan must be
implemented to meet long~term needs. This can be done
cooperatively with all parties involved. The industries must
recognize the lack of intervention by local government, but due to
this risk, the county must be prepared to handle a major hazardous
materials incident. The funding levels for the Volunteer Fire
Departments should not be reduc~d to provide fire coverage-to this
area of the county. Possibly, "some form of assessment should be
considered to purchase the equipment and pay for-personnel needed
to operate a fire station in this area. New Hanover County is
fortunate to have Volunteer Firemen who are so dedicated and
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421 NORTH FIRE SERVICE ASSESSMENT
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willing to provide fire service, and the members of the Fire
Commission are to be thanked for giving hours of their time to
address the fire concerns in the County.
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Chairman Greer inquired as to whether an arrangement can be
worked out with the city of Wilmington Fire Department to provide
three trained firemen to work in a Fire station located in this
area with use of the city's equipment for responding to hazardous
materials incidents?
Mr. Gary Rowe reported the current contract with the City of
wilmington requires the awareness level of training to be met by
the Volunteer Fire Departments with a desire for the departments to
meet the operational level. All seven Volunteer Fire Departments
have met the awareness level and each department has four to
fifteen firemen who have met the operational level. The Volunteer
Fire Departments are used to supplement the city of Wilmington Fire
Department. Also, when responding to a major hazardous materials
incident, the situation must be thoroughly analyzed before rushing
into the fire fighting procedures to be utilized. AS to the
future, there is a committee within the Fire Commission working on
a paid per call plan to see the benefits that would be derived.from
using this type of system. He requested Mr. Nic;:k Bianco to report
on the status of this study.
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Mr. Nick Bianco reported the committee is investigating two
plans for a paid fire system and is in the process of completing a
final draft that should be presented to the Fire Commission on
September 28, 1994. Information has been received from counties
and cities using these types of plans. The pay per call plan is in
a draft form and discussion is being held with the Director of
Human Resources to see if employees could be hired by the Volunteer
Fire Departments with the County administering and absorbing the
cost of benefits, including all paperwork. As a Fire Chief, it is
difficult for him to have time to work a full-time job and handle
the administrative duties involved with paid personnel. The next
meeting of the committee is scheduled for July 15, 1994, with the
hopes that reports relative to salary and benefits will be received
from the Director of Human Resources. He invited the Commissioners
to review the draft document if they so desire.
commissioner Caster commented on the recent fire that occurred
in Ohio and inquired as to the chances of a fire spreading from one
facility to another on the Highway 421 North corridor?
Director Summers responded in order to answer the question of
a fire spreading from one facility to another, you would have to go
beyond a certain point in the chain of events. In his opinion,
just because a major incident has not occurred in the past ten
years does not mean that with continued growth along this corridor
and the potential risk factor that a major hazardous materials fire
incident will not occur.
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Mr. Gary Rowe reported the incident referred to by
Commissioner Caster happened in Ohio during the past two weeks.
After receiving a report from a sister Dupont Plant, the plant that
exploded in Ohio was an oil refinery which had a problem with the
relief device. The vapors were not held back and this created the
ignition source. The Control Room in an oil refinery should be
explosive proof; however, the room exploded and four people were
killed. He reported, presently, no oil refinery is located on the
Highway 421 North corridor.
commissioner Caster commented on the potential risk on the
corridor and expressed concern for not performing long-range
planning that will prevent a catastrophic disaster in this area.
Emergency
Management
Director
five
Summers
reported
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421 NORTH FIRE SERVICE ASSESSMENT
PAGE ,1-72
evacuations have occurred on Highway 421
hazardous materials during his ten years
Director.
North due to release of
as Emergency Management
Mr. Dennis Moffett reported the response time is important
because immediate action can minimize a small fire and avoid a
major incident. Also, a Fire Administrator is needed to be sure
that an incident similar to the North Wilmington Volunteer Fire
Department does not reoccur. Regardless of what decision is made,
the Board of County Commissioners should use the expertise that
currently exists in Emergency Management, industry representatives,
volunteer firemen and members of the Fire Commission in working out
a fire protection plan for this area. A potential for a major
hazardous materials incident does exist and is not adequately
covered at the present time.
Chairman Greer expressed appreciation for the comments and
suggestions and reported hopefully a plan can be developed that
will be satisfactory to all parties involved.
ADJOURNMENT
Chairman Greer adjourned the meeting at 9:30 P.M.
Respectfully submitted,
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Clerk to the Board
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