Fire Study Calls For Unified District

BROOKSVILLE - One county. One fire district. No borders.

That's the recommendation of a long-awaited comprehensive master plan study of the county's fire and emergency operations released Wednesday.

Oregon-based Emergency Services Consulting Inc. (ESCI) spelled out three options, the preferred one being the creation of an independent special fire district - including the city of Brooksville - to be governed by an appointed board of fire commissioners with equal representation of all areas served.

In a 574-page, $128,000 report, the consultant recommends dissolving the Spring Hill and county fire departments and unifying them in a single district to be funded either through an ad valorem property tax, fire protection assessment fees or a combination of both.

ESCI estimates the consolidation would save the county $500,000 annually through the elimination of redundancy in administration costs, support services, planning and other areas. To maximize public safety, the report stresses that the "closest and most appropriate" firefighting vehicles be dispatched to any incident, regardless of location. That means dropping jurisdictional borders.

Phillip Kouwe, ESCI project manager and senior vice president, said the county doesn't have to go along with the consolidation recommendation.

"(But) it's going to be the smoothest and, according to our financial analysis, the cheapest," Kouwe said from his Charlotte, N.C., office.

However, if the county doesn't go that route, at the very least, it should consider the "closest response option" and drop its borders.

"If everybody is only allowed to go to the end of their border and then stop, it won't work," he said.

That would require working up interlocal agreements or contracts with each fire entity, he said.

Kouwe stressed that this is a full master plan, which includes short- and long-term options. The growth of the county could force county government to scrap certain options.

But the key to the entire plan is buy-in from all stakeholders, including the voters, he said.

The consultant's second recommendation is to consolidate Spring Hill and the Hernando County Fire Rescue districts but exclude the city of Brooksville.

A third option, deemed not feasible, is to consolidate only the county's fire department with the city of Brooksville.

Kouwe will give a formal presentation of his report at the Jan. 15 county commission meeting.

A Political Hot Potato

Kouwe stressed that the consolidation plan would only work if the county could overcome several obstacles, not the least of which is the political climate in the county.

Previous talks of mergers sent shockwaves throughout the community, especially in Spring Hill, which has tenaciously hung on to its only elected government entity and would be expected yet again to mount a challenge.

"Political will and the overall support of the entire community toward unification is (at this point) questionable at best," the report said. "Cultural differences and attitudes of animosity have been cultivated in these agencies by individuals intent on avoiding the very possibility of unification."

Consolidation carries other risks, the report said.

Although some areas of the county would see a possible reduction in cost, some could see an increase, without a corresponding rise in service.

Also, the potential exists in Spring Hill for a decrease in service delivery because of reallocating existing resources and staff from that community to other parts of the county.

"(Spring Hill) has a reasonable and legitimate worry that these resources, paid for through that district's revenue, would be lost," the study said.

County commissioners need to consider "the greater good" and focus on potential future fire services in adopting any consolidation plan, the report said.

Commissioners now plan to use the study to determine if it would be prudent economically and logistically to keep the status quo with separate paid and volunteer fire departments or reconfigure them to reduce redundancy and overlapping of services.

County Commissioner David Russell said consolidating Spring Hill is not an option right now because commissioners last year voted to place the issue of fire district governance on the November election ballot.

The voters will be asked whether they want to separate from the county completely by creating an independent fire district, subject only to state oversight.

"Our hands are tied with concerns to any actions with the Spring Hill Fire Board as it exists until the voters make a decision in November," Russell said.

However, he hopes the study would serve as an education tool informing voters before they go to the polls.

The county passed an ordinance making Spring Hill Fire Rescue a special district in 1973 but allowed the county to maintain budgetary oversight.

That arrangement has proven contentious over the years, especially given the volatile make-up of the fire district governing boards in past years.

Rate Structure Could Change

The Hernando County Fire Rescue District's current rate structure would also likely have to be tweaked if the consultant's funding recommendations are approved.

Currently, the county functions as a Multiple Service Benefit Unit (MSBU).

An MSBU is funded by a flat rate, special assessment based on the classification of property. That means there is no built-in mechanism to ensure that revenue keeps pace with the rising costs of doing business.

County commissioners last summer voted unanimously to raise county residential fire rates $38.50 annually to help that fire district meet increased operational expenses.

Homeowners who receive county fire services saw their bills increase from about $156.37 to $194.87 annually.

Russell said he favors the flat rate taxing system currently used by the county over the ad valorem rates imposed in Spring Hill.

"I've always felt that a rooftop (flat rate) funding formula is more equitable, particularly in these times when we've had escalating valuations on homes and some people are paying a disproportionate share of taxes," Russell said.

Ad valorem taxing is inherently inequitable, he said.

Russell said he also favors keeping intact High Point and other volunteer fire departments.

"As long as they're conforming with safety standards, volunteer fire departments should be left to do their job," he said.

Reaction

Circuit Court Clerk Karen Nicolai called the study detailed and "very well-done" hopes it will be a valuable tool for commissioners as they explore options of improving fire services in Hernando County.

"I would just hope that everyone doesn't become territorial and look how (this) is going to affect them personally," Nicolai said. "Let's look out for the county. This gives us a good master plan of how we can create a good countywide fire service."

Any attempt to create an independent fire district would require a special act of the Florida Legislature, according to Assistant County Attorney Jon Jouben.

Civic activist Janey Baldwin said a unified fire district has long been discussed but never implemented.

Baldwin served on a county commissioner-appointed 1990 fire board task force, which recommended one fire department for Hernando County.

The board didn't act on it.

She hopes that doesn't happen this time.

A single fire district would allow the county to avoid redundant purchases and save taxpayers money, she said.

Hernando Today will have more reaction on the comprehensive fire study in Friday's newspaper.

What happened Wednesday?

An Oregon-based consultant released a comprehensive master plan study analyzing all of the county's fire and emergency operations.

How much did taxpayers pay for the study?

$128,351.

What was its top recommendation?

To consolidate fire districts and form one unified department.

How much would that save taxpayers?

An estimated $500,000 annually.

What happens now?

The consultant will present the plan during the Jan. 15 county commission meeting.

Do county commissioners have to follow the consultant's recommendation?