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Home My WebLink About2017-12-12; City Council; ; 2017 North Beach Lifeguarding and Law Enforcement Pilot Program Report~ CITY COUNCIL ~ Staff Report Meeting Date To: From: Staff Contact: December 12, 2017 Mayor and City Council Kevin Crawford, City Manager Mike Davis, Fire Chief Michael.davis@carlsbadca.gov or 760-685-6403 Neil Gallucci, Police Chief Neil.gallucci@carlsbadca.gov or 760-931-2130 CA Review {!J5 Subject 2017 North Beach Lifeguarding and Law Enforcement Pilot Program Report Recommended Action Receive the 2017 North Beach Lifeguarding and Law Enforcement Pilot Program Report. Executive Summary On April 11, 2017, City Council adopted Resolution No. 2017-062, authorizing a pilot program to provide peak season lifeguard services and enhanced law enforcement on the beach between Oak Avenue and the northern Carlsbad city limit (North Beach). The pilot program ran from Memorial Day to Labor Day 2017, and was funded from Council Contingency in an amount not to exceed $300,000. This report provides an overview and evaluation of the 2017 North Beach Lifeguarding and Law Enforcement Pilot Program, including cost data, statistics and lessons learned. Staff will return to Council with a report on future lifeguard service options (i.e., No Lifeguard Services, Levels of Service, Contracted Lifeguard Services, City of Carlsbad Lifeguard Services) in January 2018. 2017 North Beach Lifeguarding and Law Enforcement Pilot Program Report Program Overview The North Beach Lifeguarding and Law Enforcement Pilot Program began on May 26, 2017, just prior to Memorial Day weekend and concluded on September 4, 2017, after the Labor Day weekend. The primary goal of the program was to reduce risk to the community through preventative actions, beach user education, rescue and emergency services, and regular lifeguard and law enforcement patrols. Other program priorities were to gain further insights into community needs and concerns regarding North Beach, to collect data to inform an understanding of predictable beach use patterns, and to develop recommendations concerning the issue of beach access gates and the overall approach to safety services on North Beach. December 12, 2017 Item #9 Page 1 of 14 Program Costs City Council approved $300,000 from the Council Contingency Fund for the 2017 North Beach Lifeguarding and Law Enforcement Pilot Program. Actual program operating costs totaled $196,195, leaving a remaining balance of $103,805. The pilot program costs exclude costs associated with the police ranger program, which are being tracked separately. 2017 North Beach Lifeguarding and Law Enforcement Pilot Program Estimated vs. Actual Operating Costs Estimated Costs Actual Costs Remaining Balance Personnel $188,136 $135,140 Equipment/Uniforms $ 8,890 $ 14,846 Operating Subtotal $197,026 $149,986 Vehicle Purchase/Outfit $ 45,000 $ 46,209 Operating Contingency $ 57,974 $ 0 Program Total $300,000 $196,195 $103,805 In addition, the city incurred the cost of a significant workers compensation claim arising from a severe neck injury suffered by a seasonal lifeguard during the 2017 pilot program. For this type of claim, the City is self-insured for up to $750,000. The city carries additional insurance for costs associated with catastrophic injuries and illnesses that exceed the self-insured lim its. In addition to this one-time cost to the city, this claim will be part of the workers compensation experience used to set the city's excess insurance rates for future years. Program Statistics The United States Lifesaving Association (USLA) sets the standard for best practices in service delivery and record keeping of work performed by lifeguards. The pilot program adopted the USLA standards for documentation to compile data for use in evaluating program effectiveness. The USLA standard for documentation can be found in Exhibit 1. Shown below is the Carlsbad Aquatic Activity Report Summary for the 2017 pilot program. AQUATIC ACTIVITY REPORT SUMMARY-CARLSBAD FIRE DEPARTMENT 2017 NORTH BEACH LIFEGUARD AND LAW ENFORCEMENT PILOT PROGRAM MAY JUNE AUGUST SEPTEMBER MEMORIAL DAY 4THOFJULY LABOR DAY (26-31) JULY (1-4) WEEKEND (Day only) WEEKEND CATEGORY TOTAL RESCUES 1 49 248 30 7 335 1 70 7 PREVENTATIVE SAFETY ACTIONS 286 5,661 10,106 5,036 863 21,952 214 1,152 863 MEDICAL AIDS 11 71 118 43 7 250 11 4 7 VESSELS 0 1 1 0 1 3 0 0 1 FATALITIES 0 0 0 0 0 0 0 0 0 SHARK SIGHTINGS 1 0 0 0 0 1 1 0 0 LAW ENFORCEMENT 43 229 174 221 42 709 43 0 42 LOST/MISSING PERSONS 3 2 9 2 0 16 3 0 0 PUBLIC EDUCATION/OUTREACH 153 3,394 4,726 2,723 287 11,283 131 449 287 MUTUAL AID 0 4 32 1 0 37 0 25 0 OTHER 269 12 12 0 0 293 183 0 0 *Other includes: Public contact, fire alarm at Inn, marine mammal rescue/removal, lost property, lift assist 3 December 12, 2017 Item #9 Page 3 of 14 During the month of July 2016, in the year prior to the city's pilot program, California State Parks lifeguards performed 335 rescues under a "duty to act" on the unguarded North Beach. No preventative safety actions occurred that month, and there were seven non-fatal drownings and one fatality in the water on North Beach. One additional non-fatal drowning occurred on Frazee State Beach while state lifeguards were performing rescues on North Beach. In contrast, Carlsbad lifeguards had an active presence on North Beach during the month of July 2017, recording a 28% reduction in the number of rescues at 243, nearly 15,000 preventative safety actions, and zero civilian drownings. Lessons Learned The following are the lessons learned during the 100 days that lifeguard services were provided on North Beach during the 2017 Summer peak season: o Lifeguards perform rescues in the ocean, which is an inherently hazardous environment. As such, there is potential for major injuries that generally fall outside of the "norm" in terms of workers compensation claims. If the city chooses to move forward with lifeguarding services (either using city staff or contracted services}, there is potential cost associated with this type of risk. If city staff perform the work, workers compensation claims associated with lifeguarding services may impact the city's insurance rate setting for future years. If contracted, the city will likely pay a premium for risk absorbed by the contractor. o Fire Department paramedics serving as lead guards could assess and treat minor injuries and illnesses without dispatching additional emergency personnel, and potentially reducing the number of emergency responses by larger fire equipment. o The use of personal watercraft proved to be very effective. Lifeguards on personal watercraft could monitor swimmers in the water environment, communicate safety messages, and rescue swimmers in rip currents effectively and efficiently with minimal resources and quick turnaround times. A comprehensive program should consider including personal watercraft. o Existing working relationships with Encinitas and Oceanside fire departments proved to be valuable in conducting lifeguard testing, training, and operations. Any future service provider should establish and maintain strong working relationships in preparation for multi-agency or multi-jurisdictional emergency responses. o Clear, reliable communications are critical for effective emergency response and efficient incident stabilization across multiple responding agencies. The San Diego County Regional Communication System (RCS} provides reliable radio coverage on North Beach. Any future service provider should have and maintain RCS 800 MHz communications with the North Zone frequencies. 4 December 12, 2017 Item #9 Page 4 of 14 North Beach Safety Service Options Staff will be returning to Council in January 2018 to discuss future lifeguard service options. In deciding how best to move forward, there are a few fundamental policy questions for Council to consider: 1. Should the city provide lifeguard services on North Beach, or not. 2. If lifeguard services are provided, what level of service is appropriate? 3. If lifeguard services are provided, should those services be provided using city staff, or through a contracted service provider? In order to help frame the Council discussion in January, several options (i.e., No Lifeguard Services, Levels of Service, Contracted Lifeguard Services, City of Carlsbad Lifeguard Services) will be presented for Council consideration, along with a detailed comparative analysis. Fiscal Analysis The 2017 North Beach Lifeguarding and Law Enforcement Pilot Program was funded through Council Contingency, in an amount not to exceed $300,000. Actual program operating costs totaled $196,195, leaving a remaining balance of $103,805. The pilot program budget did not include the cost of a major injury incurred during the program which, in addition to a substantial one-time cost to the city, will be part of the workers compensation experience used to set the city's workers compensation rates for future years. Fiscal impacts associated with the provision of safety services vary according to the service level and approach taken. A detailed fiscal analysis will be applied to the service model options that are presented to Council in January. Next Steps Staff requests that City Council receive the 2017 North Beach Lifeguarding and Law Enforcement Pilot Program Staff Report. Staff will return to Council in January 2018 to discuss a variety of options for North Beach safety services. Environmental Evaluation (CEQA) Receiving this report is not a "project" under the California Environmental Quality Act (CEQA) per State CEQA Guidelines Section 15378, as it does not result in a direct or reasonably foreseeable indirect physical change in the environment. Public Notification This item was noticed in accordance with the Ralph M. Brown Act (California Government Code Section 54950 et seq.), published and distributed at least 72 hours prior to the meeting date and time. Exhibits 1. USLA Standard for Documentation 2. Community Feedback 3. Police Activity Report 6 December 12, 2017 Item #9 Page 6 of 14 Jason Haber, Assistant to the City Manager Michael Calderwood, Fire Division Chief December 12, 2017 2017 North Beach Lifeguarding and Law Enforcement Pilot Program Report Today’s Presentation •Informational/no action requested •History and background •Results of the pilot program •Return with options/request direction Background •North beach not part of State Parks system •Beach currently unguarded •Increased usage Public Input •Public comment •Social media •Online survey •Public meeting Concerns •Increased calls for service •High visitor usage •City resources to support emergency response •Quality of life concerns Council Direction •April 11, 2017, direction to conduct pilot program •Provide peak season lifeguards and enhanced law enforcement –Memorial Day to Labor Day 2017 •Evaluate need for restricted access •Return with findings and options Law Enforcement •Added patrols •Increased outreach to neighbors •Pilot ranger program underway –Update in Spring 2018 Lifeguard Pilot Program Goals •Enhance safety –Prevention, response, enforcement •Gain insight into community needs –Personal contacts •Collect data Implementation •Developed plan •Hired and trained staff to U.S. Lifesaving Association standards •Procured equipment/supplies •Implemented program Operations Overview •No new towers •Partnerships –Army and Navy Academy –Carlsbad by the Sea –Neighboring agencies Standard Metrics MAY (26-31)JUNE JULY AUGUST SEPTEMBER (1-4) MEMORIAL DAY WEEKEND 4TH OF JULY (Day only) LABOR DAY WEEKEND CATEGORY TOTAL RESCUES 1 49 248 30 7 335 1 70 7 PREVENTATIVE SAFETY ACTIONS 286 5,661 10,106 5,036 863 21,952 214 1,152 863 MEDICAL AIDS 11 71 118 43 7 250 11 4 7 VESSELS 0 1 1 0 1 3 0 0 1 FATALITIES 0 0 0 0 0 0 0 0 0 SHARK SIGHTINGS 1 0 0 0 0 1 1 0 0 LAW ENFORCEMENT 43 229 174 221 42 709 43 0 42 LOST/MISSING PERSONS 3 2 9 2 0 16 3 0 0 PUBLIC EDUCATION/OUTREACH 153 3,394 4,726 2,723 287 11,283 131 449 287 MUTUAL AID 0 4 32 1 0 37 0 25 0 OTHER 269 12 12 0 0 293 183 0 0 AQUATIC ACTIVITY REPORT SUMMARY - CARLSBAD FIRE DEPARTMENT 2017 NORTH BEACH LIFEGUARD AND LAW ENFORCEMENT PILOT PROGRAM *Other includes: Public contact, fire alarm at Inn, marine mammal rescue/removal, lost property, lift assist Public Education Contacts 11,283 Medical Aid 250 Preventive Actions 21,952 Rescues 335 Summer 20177 Drownings Summer 2016 0 Key Findings •Summer beach usage/need •North Beach unique features •Importance of prevention •Communications •Inter-/Intra-agency collaboration Data Limitations •3 month snapshot/may not be representative •One model tested •Quick deployment/learned as we went Estimated Costs Actual Costs Remaining Balance Personnel $ 188,136 $ 135,140 Equipment/Uniforms $ 8,890 $ 14,846 Operating Subtotal $ 197,026 $ 149,986 Vehicle Purchase/Outfit $ 45,000 $ 46,209 Operating Contingency $ 57,974 $ 0 Program Total $ 300,000 $ 196,195 $ 103,805 Operating Budget to Actual Policy Considerations •City role •Cost of providing service –Staffing, training, facilities, equipment •Method of providing service –USLA Basic/Advanced plus paramedics, city employees, contractors, agency partnerships What’s Next •Staff to present options for City Council consideration •Council to provide direction on next steps