TO: Board of Supervisors
FROM: Jason Martin, Fire Chief
REPORT BY: Stacie McCambridge, Staff Services Manager
SUBJECT: Discussion of the Early Wildland Fire Detection RFP
RECOMMENDATION
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County Fire Chief requests discussion and direction regarding the Wildfire Early Detection System and direction regarding the current Request for Proposal (RFP) process.
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EXECUTIVE SUMMARY
On August 24, 2021, the Board provided direction to enter into a short-term contract with Illumination Technologies California (ITC) to install and activate 3 Fire IQ cameras which would provide early fire detection capabilities for a portion of the County during the 2021 fire season. At the same time, the Board requested staff investigate the possibility of contracting for a larger system, one that would provide similar service on a larger scale. The RFP was intentionally “technologically neutral” to provide the ability for bids to present various early detection options.
PROCEDURAL REQUIREMENTS
1. Staff Report
2. Public Comment
3. Motion, second, discussion and vote on item.
FISCAL & STRATEGIC PLAN IMPACT
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Is there a Fiscal Impact? |
No |
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County Strategic Plan pillar addressed: |
Healthy, Safe, and Welcoming Place to Live, Work, and Visit |
ENVIRONMENTAL IMPACT
ENVIRONMENTAL DETERMINATION: There is no possibility the proposed action may have a significant effect on the environment and therefore CEQA is not applicable pursuant to the General Rule contained in the Guidelines for the Implementation of the California Environmental Quality Act, 14 CCR 15061 (b)(3).
BACKGROUND AND DISCUSSION
Since 2014, there have been nine declared disasters for wildfires in Napa County. During 2020, the LNU Lightning Complex Fire killed six people, burned 363,220 acres, destroyed 1,491 structures, and caused $47 million in damage. The Glass Fire burned 67,480 acres, destroyed 1,555 structures, and caused $750 million in damage. In 2018, the County Fire burned 89,831 acres. In 2017, the Tubbs, Nuns and Atlas Fires killed 48 people, burned 144,125 acres, and destroyed over 5,756 structures. The “Napa County Multi-Jurisdictional Hazard Mitigation Plan” states that 36 percent of the population, 38 percent of the parcels and $2.36 Billion of improvements in Napa County are within “Moderate” to “Very High” Wildfire Hazard Severity Zones.
On August 13, 2020, the Federal Emergency Management Agency approved the “Napa County Multi-Jurisdictional Hazard Mitigation Plan 2020 Update”. In December 2020, the Board of Supervisors approved an updated “Napa County Operational Area Emergency Operations Plan”. In May 2021, the Napa Community Firewise Foundation completed a county-wide Community Wildfire Protection Plan (CWPP) to help Agencies, Fire Safe Councils, Communities, and local homeowners define, plan, and prioritize actions to limit damage from the inevitability of wildland fire. It was funded in large part by a CAL FIRE Climate Change Investment Fund Fire Prevention Grant.
There are several ALERT Wildfire cameras throughout the San Francisco North Bay Area that public safety staff and the public can use to observe Napa County. CalFire uses the pan-tilt-zoom cameras to monitor wildfires; however, there is not software available to detect fire starts (ignition) nor alert first responders. On February 3, 2020, the Federal Emergency Management Agency (FEMA) granted $2 million to the California Governor’s Office of Emergency Services (Cal OES) and Sonoma County for long-range, fire detection cameras. Mounted high on towers, the cameras will alert emergency officials of potential wildfires by constantly surveying Sonoma County and portions of Mendocino, Lake, Napa, and Marin counties for smoke and fire in order to prevent the loss of life, property, and economic damage. (https://www.fema.gov/press-release/20210318/fema-grants-cal-oes-and-sonoma-county-2m-wildfire-detection-system ) With $300,000 of the funding, Sonoma County hired Alchera to provide software for the ALERT Wildfire cameras. Reports to date indicate the software is not performing well.
After the 2020 fires, Napa County pursued options for detecting wildfire starts and giving firefighters a chance to extinguish a fire before it grows out of control. In 2020, Illumination Technologies California (ITC) worked with the City of Calistoga and Napa County to construct two cellular towers (monopoles) with sirens, install an IQ FireWatch fire sensor on an existing communications tower at the Clover Flat Landfill (CFL), and construct a new tower with an IQ FireWatch sensor on private property on Diamond Mountain (DM). The monopoles are on Petrified Forest Road west of the City and Rosedale Lane east of the City. The CFL is east of Calistoga and DM is south of Calistoga.
On July 21, 2020, ITC made a presentation to the Board of Supervisors on their proposal to install monopoles at various locations on the County's rights-of-way to improve cellular telephone coverage and IQ FireWatch sites on private property to detect wildfire starts. On February 23, 2021, the Board approved an agreement with ITC to pay the County to hire a consultant to prepare the necessary California Environmental Quality Act (CEQA) document for the Monopole Project. In late February and March, WRECO staff conducted field surveys of the 13 commercially viable monopoles around the Napa Valley, 10 monopoles that are not commercially viable to improve broadband service outside of the Napa Valley, and 11 IQ FireWatch sites on private property.
In June 2021, ITC requested a change in the terms of a draft Right-of-way agreement, which reduced the IQ FireWatch system from 10 sensors, to two, or possibly three locations that could cover 75% of the area of the Napa Valley. They removed the offer to locate telecommunications poles in unprofitable, but hard to serve areas around the County, and reduced their offer to maintain and operate the IQ FireWatch system from 30 years to only include 2021 and 2022.
On August 24, 2021, the Board rejected the original proposal and directed staff to towards a service agreement with ITC for the three IQ FireWatch sensors. In September 2021, ITC planned to install a third IQ sensor on the County’s existing communications tower on Atlas Peak, which is northeast of Yountville. The August 24 Board Agenda Letter regarding IQ FireWatch sensors and a map with the locations of the IQ FireWatch sensors are attached. As mentioned previously, the Board of Supervisors approved entering into a service agreement with ITC for monitoring the three IQ FireWatch sensors which were used for the remainder of the 2021 fire season.
In Napa County, most wildfires are reported by the general public, commercial airline flights, and dedicated aerial reconnaissance during periods of high fire risk and the County is also interested in other long-term options, such as using satellites to detect wildfire ignitions and notify first responders of the location of the fire, especially at night. All forms of technology will be considered so long as they meet the County’s need for early detection and notification at a reasonable price.
Proposals were received in response to the RFP and interviews conducted in December 2021. An interview panel consisting of 3 fire personnel and two representatives from Public Works selected one vendor and all respondents were notified. At the present time, one vendor has submitted a protest. The Board has two options: 1) continue with the protest process; or 2) reject all bids. If the Board rejects all bids, staff will return with recommendations for the 2022 Fire Season.
The RFP included the County’s ability to reserve the right to reject any or all proposals submitted, and no representation is made that any agreement will be awarded pursuant to this RFP or otherwise.
While the idea and concept of early detection is appealing, none of the companies interviewed have existing contracts or track records to validate their ability to perform. Each company's staff profile showed them working in this venue for the last 12-18 months, with no full-time early detection specialists or references. This is not to say they may not be leading experts in technology or "artificial intelligence"; however, there is no current proof of concept for this RFP that proves the cost to benefit value yet. It is easy to assume that if a given system worked, then you may be able to quantify its value, however, proposing anywhere from half a million to 1.6 million dollars annually on an unproven concept is a gamble. Each vendor stated that 'their interpretation of detections is getting better all the time or 'constantly improving,' but no one could give more than a single example or two of consistent improvements over our current model of 911 reporting.