EXHIBIT D So Shore Station Recommendation report.pdf

SOUTHSHOREFIRESTATION

Endorsed by members of the South Shore Fire Station Task Force on

February 20, 2025

Recommendation Report

Prepared for:

The City of Lake Oswego City Council Mayor Joe Buck Councilor Ali Afghan Councilor Trudy Corrigan Councilor Massene Mboup Councilor Aaron Rapf Councilor Rachel Verdick Councilor John Wendland

Summarizing the Recommendations and Findings of:

The South Shore Fire Station Task Force

Task Force Chris Durkee, Chair, Palisades Neighborhood Association Kianna Angelo, At-Large Patrick Cechini, Mary’ s Woods Buzz Chandler, Sustainability Advisory Board Jeff Gudman, At-Large Jonathan Harrell, Lake Grove Fire District Dashel Hinrichs, At-Large, Youth Carrie Love, Budget Committee Christian Manz, Hallinan Neighborhood Association Liza Parker, Chamber of Commerce Mignon Reynolds, At-Large Ginny Perelson, DEI Advisory Board Karen Sampson, At-Large Aidan Shannon, At-Large, Youth Ellen Steel, McVey-South Shore Neighborhood Association

Trudy Corrigan, City Council Liaison Jonathan Isbell, IAFF, Local 1159 Liaison

Project Staff Don Jonson, Fire Chief Kristine Artman, Assistant Fire Chief Quin Brunner, Management Analyst Amanda Creek, Fire Office Manager Shawn Cross, Finance Director Hannah Proffitt, GIS Analyst Sidaro Sin, Redevelopment Manager Madison Thesing, Assistant to the City Manager

Photos Dave Arpin

Illustrations & Design Jacelyn Shu

Summary of Key Findings Recommendation Background Key Findings

KF1. Current facility conditions KF2. LOFD response network KF3. Long- term spatial needs KF4. Optimum location KF5. Infeasible alternatives KF6. Land acquisition KF7. Preliminary cost estimate KF8. Funding method

Appendix A: Resolution 24-38 – Creating the South Shore Fire Station Task Force

Appendix B: Resolution 24-39 – Appointing Members to the South Shore Fire Station Task Force

Appendix C: Resolution 24-45 – Appointing Members to the South Shore Fire Station Task Force

Appendix D: 2008 Facility Study by SERA Appendix E: 2007 Feasibility Study by Mackenzie

TABLE OF CONTENTS

The City needs a fire station in the southeast quadrant of Lake Oswego to maintain the current level of system- wide service.

3 A new fire station should be built to meet the needs of the LOFD for the next 50 years. The long- term projected spatial need is approximately 14, 000 sf.

5 Alternatives, including renovating the existing facility, were deemed infeasible.

7 Based on comparable projects, a new build of this size could cost up to 18 million.

The South Shore Fire Station has reached the end of its useful life.1

The current location of Station 212 is optimum.

Staff should further explore the benefits and feasibility of acquiring additional land.6

The most viable funding source would be a General Obligation Bond.

South Shore Fire Station Recommendation Report

SUMMARY OF KEY FINDINGS

2 | SSFS Task Force – February 20, 2025

Recommendation

Having adopted the key findings detailed in this report, members of the South Shore Fire Station Task Force recommend that the City Council continue to pursue building a new station at the current site of the South Shore Fire Station.

Continuing this process would involve two significant bodies of work:

Determining Project Cost. The cost estimate outlined in this report is based solely on comparable projects. To determine the actual cost of rebuilding the South Shore Fire Station, City staff would need to contract for professional services ( including an owner’ s representative, architect, and general contractor or cost consultant). This work – which would yield a preliminary station design and total project cost estimate – would take approximately seven months.

Generating Public Support. The City Council could refer a bond measure to Lake Oswego voters for the election on November 4, 2025 or May 19, 2026. To ensure voters have all relevant information about this project, staff would conduct polling and execute the full-scale community engagement plan endorsed by the Task Force. This work would continue until the end of the election in which the bond is considered.

Project Timeline. The bodies of work outlined above constitute Phase Two of the South Shore Fire Station project, with Phase One consisting of the work just completed by the Task Force and Phase Three beginning with the passage of the bond and concluding with a ribbon cutting. The Phase Two timeline is outlined in Figure 1.

If the City Council directs staff to begin Phase Two, the next significant checkpoint would be in approximately seven months. At this time, staff would share conceptual station designs, the total proposed bond amount, and recommended timing for a bond.

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P r o j e c t t i m e l i n e f o r P h a s e T w o l e a d i n g t o a M a y 2 0 2 6 b o n d m e a s u r e

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Background

Constructed in 1971, the South Shore Fire Station is the oldest of Lake Oswego' s four fire stations.

Location and Service Area. Located at 1880 South Shore Boulevard, firefighters based out of this facility primarily respond to calls for service within the southeast quadrant of the city. In 2024, firefighters from the South Shore Fire Station responded to 1,106 calls for service ranging from public service calls to medical emergencies, to fire and life safety incidents.

Project History. Our community has been considering changes to the South Shore Fire Station, in fits-and-starts, for nearly two decades. In 2007-08, City staff studied facility deficiencies and scoped replacement costs. In 2009, the City Council considered and deferred a rebuild. In 2018, there was movement to close the station, which met staunch public opposition.

Current Effort. Results from the City’ s 2023 community survey found that more than 50% of respondents supported investing in the South Shore Fire Station project. In 2024, the City Council designated this project as a strategic initiative, directing staff to "begin a needs assessment and community engagement process to rebuild the South Shore Fire Station."

On September 3, 2024, the City Council adopted Resolution 24-38, creating the South Shore Fire Station Task Force. The charge of the group, from Resolution 24-38:

The Task Force shall review and provide feedback on:

A. The Fire Department’ s assessment of community coverage needs, B. Existing facility and site conditions at the South Shore Fire Station, C. The Department’ s vision for their next generation of service provision, D. Preliminary project cost estimates, and E. A full-scale community engagement strategy, contingent upon a City

Council decision to advance this project.

Staff launched a community- wide recruitment and selection process, yielding forty applications. In October, the City Council adopted Resolution 24-39 and Resolution 24-45, appointing seventeen members to the South Shore Fire Station Task Force. This resolution also designated Councilor Trudy Corrigan as the City Council’ s liaison to the Task Force, and Lieutenant Jonathan Isbell as the liaison to the International Association of Fire Fighters, Local 1159.

Task Force Composition. Nine Task Force members were nominated to represent key stakeholder groups while eight were selected for at-large positions. Stakeholder groups include:

McVey-South Shore Neighborhood Association Mary's Woods DEI Advisory Board

Palisades Neighborhood Association Lake Grove Fire District Sustainability Advisory Board

Hallinan Neighborhood Association Chamber of Commerce Budget Committee

Figure 2. The current South Shore Fire Station is approximately 5,500 square feet.

S-1-5-21-2029537294-626873579-1011632211-18036 https://www.ci.oswego.or.us/planning/mcvey-south-shore-neighborhood-association

S-1-5-21-2029537294-626873579-1011632211-18036 https://www.ci.oswego.or.us/planning/mcvey-south-shore-neighborhood-association

S-1-5-21-2029537294-626873579-1011632211-18036 https://maryswoods.org/

S-1-5-21-2029537294-626873579-1011632211-18036 https://www.ci.oswego.or.us/boc/dei-advisory-board

S-1-5-21-2029537294-626873579-1011632211-18036 https://www.ci.oswego.or.us/planning/palisades-neighborhood-association

S-1-5-21-2029537294-626873579-1011632211-18036 https://www.ci.oswego.or.us/planning/palisades-neighborhood-association

S-1-5-21-2029537294-626873579-1011632211-18036 https://www.lgfd57.com/

S-1-5-21-2029537294-626873579-1011632211-18036 https://www.ci.oswego.or.us/boc_sab

S-1-5-21-2029537294-626873579-1011632211-18036 https://www.ci.oswego.or.us/planning/hallinan-heights-neighborhood-association

S-1-5-21-2029537294-626873579-1011632211-18036 https://www.ci.oswego.or.us/planning/hallinan-heights-neighborhood-association

S-1-5-21-2029537294-626873579-1011632211-18036 https://lakeoswegochamber.com/

S-1-5-21-2029537294-626873579-1011632211-18036 https://www.ci.oswego.or.us/boc_bc

5 | SSFS Task Force – February 20, 2025

The eight members selected for at-large positions were chosen from a pool of forty applicants. The selected at-large members included two youth appointees. At their first meeting, members of the South Shore Fire Station Task Force unanimously selected Chris Durkee to serve as their Chair.

Task Force Action. The South Shore Fire Station Task Force held six regular meetings between October 24, 2024 and February 20, 2025. Many Task Force members also attended tours of two recently- built fire stations in neighboring districts: Tualatin Valley Fire & Rescue’ s Station 39, and Clackamas Fire District’ s Station 16.

At their regular meetings, Task Force members reviewed information prepared by project staff and produced eight key findings, summarized in this report. These findings address the first four prongs of the Task Force’ s charge, while the fifth, a full-scale community engagement strategy, is outlined in a separate document.

Task Force members formally endorsed both this report and the Phase Two community engagement strategy at their final meeting, on February 20, 2025.

Figure 5. Members of the South Shore Fire Station Task Force at their first meeting.

Figure 3. TVF& R Station 39. Figure 4. CFD Station 16.

S-1-5-21-2029537294-626873579-1011632211-18036 https://clackamasfire.com/fire-stations/station-16-hilltop/

S-1-5-21-2029537294-626873579-1011632211-18036 https://www.tvfr.com/320/McEwan-Road-Station-39---New-Station https://clackamasfire.com/fire-stations/station-16-hilltop/ addressing the charge from the City Council to study:

A Current Needs

B Current

Conditions

C Future Needs

D Project Costs

E Community

Engagement*

A draft community engagement strategy has been endorsed by the Task Force but is not included in this report.

EIGHT KEY FINDINGS

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A 2008 assessment of facility conditions, conducted by SERA Architects, systematically identifies design elements of the South Shore Fire Station that the Fire Department has outgrown. Over the last fourteen years, through strategic investment, the Fire Department has addressed deferred maintenance issues and extended the life of this facility. These improvements have included:

Seismic upgrades to apparatus bay.

Back-up generator repair.

Remodeling group dorm space to create individual sleeping quarters.

Major landscaping improvements to assist in eradicating rodent infestation.

Repair and replacement of roof sections to address interior leaks.

Sewer video scoping and preventative maintenance to keep lines clear.

Currently, there remain eleven significant facility deficiencies that need to be remedied. While some are regular maintenance items, most reflect a need to implement more modern services and department practices. These needs necessitate new spatial layouts and are limited by the initial construction of the building. Given the nearly comprehensive list of facility limitations, members of the Task Force concluded that this facility has reached the end of its useful life. Existing facility deficiencies include:

Inadequate vehicle and apparatus storage.

Electrical system and backup power in poor condition.

Roof in need of replacement.

HVAC system needs to be upgraded and/ or replaced.

Inadequate separation between living and office space limits opportunities for professional coaching.

Group bathroom lacks privacy and equitable accommodations.

ADA upgrades needed for public areas, Longstanding rodent problem.

No diversion system for run-off from apparatus when cleaning and or flushing tanks; run-off currently goes into stormwater system which is out-of-compliance with code.

Limited storage space.

Not built to current “ essential facility” seismic standards.

Figure 6. The rescue boat fits in the apparatus bay with less than three inches of clearance.

Figure 7. The group bathroom has two entrances and little separation between toilets and showers.

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Current Level of Service. The City of Lake Oswego has four fire stations, housing 44 firefighter-paramedics and 12 vehicles and apparatus. In 2024, the Fire Department responded to 5,117 incidents. Of these, 69% were for medical services, 23% were for public assistance, 3% were fires, and 4% were false alarms.

LOFD as a System. The location of each emergency vehicle is monitored in real-time by LOCOM ( Lake Oswego’ s emergency dispatch center) allowing dispatchers to send the closest apparatus to any emergency. When one unit is deployed, those in adjacent units “ step-up,” covering an expanded response area until the original incident is resolved. This dynamic approach to community coverage is highly efficient, ensuring residents receive rapid assistance and that the Fire Department maintains response time standards.

Fires (3%)

Medical (69%)

False Alarms 4%)

Public Assistance 23%)

2024 LOFD Incident Types

Figure 9. The City’ s four fire stations are strategically located to ensure prompt response times for all Lake

Oswego residents.

Figure 8. Nearly 70% of LOFD’ s calls in 2024 were for medical incidents.

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Response Time Standards. Two agencies maintain response time standards used by the LOFD: The National Fire Protection Association ( NFPA) and Clackamas County. These response time standards include every step of the emergency response process, from the time a 911 call is answered to first-responders arriving on scene.

NFPA. The NFPA compiles and maintains a widely accepted set of standards for fire/ medical call processing and response time. While these standards are non-binding, the LOFD measures themselves against these benchmarks.

Table 1.

Summary of NFPA 1710

Call Answering by LOCOM < 15 seconds 95% of all calls Call Processing Time by LOCOM < 60 seconds 90% of all calls Turnout Time for Firefighter-Paramedics 60 seconds Travel Time for First Arriving Engine Company 240 seconds (4 mins) Travel Time for First Arriving Paramedic 480 seconds (8 mins)

Clackamas County. The City holds a contract with Clackamas County to “ stop-the-clock” for American Medical Response ( AMR), the private ambulance company operating under exclusive franchise agreement with the County. Under this contract, LOFD’ s first arriving paramedics are required to arrive within eight minutes of being dispatched, 90% of the time, for priority one calls.

Priority one calls are high acuity incidents such as a cardiac event, stroke, difficulty breathing, or significant trauma. Failure to maintain this standard would lead the County to withhold funds.

Rationale for Standards. These standards are in place because of the significant impact response time has on survivability and loss mitigation.

In the event of cardiac arrest, the optimal response time threshold for predicting survival is 6.2 minutes, according to a 2021 paper published in Emergency Medical International. This survivability threshold is, on average, prolonged when a cardiac arrest takes place in public and a bystander is able to provide CPR.

In the event of a house fire, property destruction generally exceeds 50% after burning for 8 minutes according to the NFPA. As illustrated on the chart Fire Propagation Curve, there is a rapid increase in rate-of-loss between six and ten minutes.

ISO Rating. The Insurance Services Office ( ISO) rates every fire department in the country on a scale of 1 (best) to 10 (worst) based on their fire protection and suppression capabilities. The ISO score issued to a fire department directly impacts the insurance rate of every home covered by that fire department. The Lake Oswego Fire Department currently holds an ISO rating of 2, the best ranking feasible for a community of our size.

Figure 10. There is a rapid increase in rate-of-loss six-to-ten minutes after the beginning of a fire.

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Response Time Impact of Closing Station 212. Closing Station 212 would result in 35% of residences in the 212 Fire Management Area ( FMA) falling below the critical 6-minute drive time threshold ( 1,139 residences). Currently, 12% of residences in the 212 FMA (461) and 4% of residences city-wide (777) fall below this threshold.

Drive Time v. Response Time. The following tables and maps depict drive time, a significant component of total response time.

The Task Force used this metric to analyze the impact of closing Station 212 because drive time is a function of station location, while other components of response time (call processing and crew turnout) are not. As outlined in the NFPA 1710 response table on the previous page ( Table 1), total response time is approximately two minutes longer than drive time. A drive time of six minutes or less ( shown as green or yellow) enables LOFD to consistently arrive at priority one incidents less than eight minutes after LOCOM answers the 911 call.

Explanation of Tables and Figures. Figure 11 and Figure 12 illustrate drive time coverage with and without Station 212. Tables 2-5 quantify the coverage bands, with Table 2 and Table 3 outlining current service levels (city-wide and “ zoomed- in” to the Station 212 Fire Management Area) and Table 4 and Table 5 showing coverage levels without Station 212.

These maps and tables rely on Esri drive time data. Slight discrepancies in total land area and residences are due to “clipping” variations and do not impact the findings.

Functionally, these are best- case scenario drive times. This analysis does not factor- in high-volume traffic conditions, hazards which may block primary response routes, or instances in which the primary response vehicle is already on a call.

In Tables 2-5, the percentage of residences within a six-minute drive-time are circled.

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Drivers of Square Footage. There are three main spaces in a fire station: The Apparatus Bay, Living Quarters, and Public-Facing Space. Task Force members reviewed the elements in these spaces that drive square footage as they toured Station 212, along with two recently constructed fire stations in neighboring communities.

In the Apparatus Bay, key drivers of square footage are:

Apparatus Bays. These sixteen- foot-wide covered lanes are equipped with overhead electrical hookups, overhead plumbing, and underground drainage and filtration. Most apparatus bays have doors at both ends, allowing operators to pull-through and avoid backing. Station 212 should have three-and-a-half apparatus bays, similar to the Main Fire Station. The current station has two single-depth back-in bays.

Turnout Room. Storage for the two sets of turnouts worn by firefighters on calls. Best practice is to store these in a separate room to mitigate the spread of carcinogens. The current station has been retrofitted to create a separate storage space, but it is undersized.

Decontamination Room. A pressure- negative space ( or sequence of spaces) where firefighters and gear can get clean following a call. Firefighters at Station 212 currently clean up post-call in the group bathroom adjacent to their living quarters. Turnout gear is sent to Portland for cleaning.

EMS Storage. A designated room for EMS stock, including a locked refrigerator for medication. Station 212’s EMS storage room doubles as the laundry room.

Shop. Space for maintaining and repairing rescue equipment. A cleaning supply closet in Station 212 has been repurposed for this function.

General Storage. At 212, the equipment for the rescue boat team is one of the most significant storage needs. This is currently housed on a floating rack between the engine and rescue boat.

General Circulation. While there are not traditional hallways in the apparatus bay, the 15% designated for circulation provides for walkways connecting each element listed above.

Figure 13. There are two single-depth back-in apparatus bays at the current station.

Figure 14. The existing turnout room is undersized.

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In the Living Quarters, key drivers of square footage are:

Bunk Rooms. Fire stations have almost universally shifted away from shared bunk rooms, favoring individual dorm-style rooms instead. Private sleeping quarters support gender diversity and better rest, particularly in stations that house multiple crews. Having more rooms than active crew members enables smooth shift changes and upstaffing during emergency events. The Fire Department retrofitted Station 212’ s sleeping quarters in 2020, creating four individual bunk rooms, plus a lieutenant’ s quarters.

Bathrooms. Similarly, group locker rooms are being replaced by single-occupant bathrooms. This simultaneously supports gender diversity and results in a more efficient use of square footage.

Except for the lieutenant’ s quarters, Station 212 currently has a single group bathroom ( not locker room) that serves both the bunk room and the living space.

Battalion Chief Quarters. A Battalion Chief oversees all firefighters at all stations during their 24-hour shift. Their quarters typically consist of a bunk, bathroom, and separate office. Lake Oswego’ s Battalion Chiefs currently operate out of the Main Fire Station.

Kitchen + Dining. Just like in a home, except with three refrigerators and an automatic shut-off switch for outlets and appliances.

Day Room. The heart of a fire station, this is where firefighters train, rest, and connect with each other during the lulls in their 24-hour shifts.

Lieutenant Office. Designated space for the shift Lieutenant, who is responsible for the crew housed at Station 212. The current station does not have any private office space, which is important for coaching or counseling firefighters and managing administrative tasks.

Group Office. An area, separate from the living zone, where firefighters can write incident reports and complete other administrative functions. Other public safety employees, like police on patrol, could also use this space for mid-shift report writing. The current station has a single shared office with two desktop computers.

Figure 16. The kitchen, dining room, and day room are where firefighters spend most of their downtime.

Figure 17. The current station has a single group office, limiting opportunities for professional coaching.

Figure 15. A cleaning closet doubles as the shop.

15 | SSFS Task Force – February 20, 2025

Fitness Room. Firefighters are expected to work out for one hour per shift. The current gym space is a converted storage room abutting the Lieutenant’ s quarters.

Laundry Room. Currently, the laundry room is little more than a closet with a washer and dryer.

Storage. Minimal (compared to the app bay) but necessary.

Data, Electrical, Mechanical. Another prerequisite.

General Circulation. Hallways and walkways connecting these elements. Once again, 15% is applied as a standard.

In the Public- Facing Space, the primary drivers of square footage are:

Multipurpose Room. A publicly accessible multipurpose room provides space for both department and community functions. In other communities, these are used for Department trainings and meetings, community classes ( like CPR, first aid, CERT), and public meetings ( Boards & Commissions, Neighborhood Associations).

There is no public- facing space in the current station.

Public Bathroom. Two single-occupant bathrooms.

Respite Room. A small room where people attending a public meeting or class can have privacy.

Often used as a lactation room or for attending to medical needs.

Lobby, Entry, Storage. Vestibule plus reception area for members of the public. Storage accounted for here, as well.

General Circulation. Hallways and walkways connecting these elements, 15%.

Estimating Square Footage Need. Staff used a 2007 feasibility study by Mackenzie Architects outlining a potential rebuild of the South Shore Fire Station, along with floorplans from six other projects, to estimate the necessary square footage for each space listed above. This process did not include consideration of how these elements may fit together, which is typically where efficiencies can be found that reduce the total project square footage. This is work that would be conducted by an architect in Phase Two of this project.

Staff outlined three spatial programs, ranging between 12,000-14,000 square feet, assigned cost estimates, and asked the Task Force to weigh the trade-offs of each option. Members of the Task Force, observing the relatively small difference in cost between a 30-year fire station (with six dorms) and a 50-year fire station (with eight), unanimously recommended the spatial program projected to meet the fire department’ s needs for the next 50 years.

Table 6.

Square Footage Estimate – Line Items

Square Feet App bay subtotal 6,542 Living subtotal 5,827 Public- facing subtotal 1,588 Total 13,957

Figure 18. Exercise equipment is strategically positioned under a skylight.

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Table 6 cont.

Square Footage Estimate – Line Items

App Bay Square Feet 75' x 16' per bay x 3.5 bays) 4,200

Turnout room 250 Decontamination room(s) 400 EMS storage 158 Shop 231 App bay side storage 450 General circulation in app bay (15%) 853 Subtotal 6,542 Living Quarters Square Feet Bunk (183sqft x 8 bunks) 1,464 Bathroom w/ shower (64sqft x 5 bath) 320 BC Quarters ( bunk, office, shower) 770 Kitchen + dining 550 Day room 400 Lieutenant office 109 Group office 245 Fitness 600 Laundry 100 Storage 200 Data, electrical, mechanical 309 General circulation in living space (15%) 760 Subtotal 5,827 Public- Facing Space Square Feet Multipurpose room 900 Public bathroom (64sqft x 2 bath) 128 Respite room 109 Lobby, entry, storage 244 General circulation in public- facing space (15%) 207 Subtotal 1,588

Outdoor Elements. The methodology used to generate preliminary cost estimates ( see Key Finding 7) relies on an industry standard: total project cost / square footage of built space. This methodology accounts for the cost of outdoor elements ( and design features) too, but they are not explicitly outlined in the preceding section.

Outdoor elements that are expected to be a part of this project include:

ADA pathway connecting Southshore Blvd and Kilkenny Rd ( current non-compliant pathway on recommended project site).

Covered outdoor patio.

On-site parking.

Electric vehicle charging infrastructure.

Backup generator.

Diesel fuel tank for on-site refueling.

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Beginning with 142 alternative sites in the southeast quadrant of the City, Task Force members developed seven criteria to analyze feasibility and response- time impact. After reviewing this analysis, Task Force members concluded that the current location of Station 212 is optimum.

Method. Staff used the 2023 Buildable Lands Inventory to identify vacant and partially vacant parcels within City limits. Parcels already developed to their highest and best use (classified as developed) were eliminated from consideration.

In this analysis, vacant parcels are those with a building improvement value of less than $20,000 while partially vacant parcels have an existing single- detached home that may be large enough to further subdivide or develop. Specifically, parcels were classified as partially vacant if they are greater than 5x the minimum lot size OR are 2-5x the minimum lot size with building value less than $200,000.

Staff narrowed the search to the Station 212 Fire Management Area, leaving 142 parcels categorized as vacant or partially vacant in consideration.

Figure 19. There are 142 vacant or partially vacant parcels in the 212 Fire Management Area, as defined by the 2023 Buildable Lands Inventory.

https://www.ci.oswego.or.us/WebLink/DocView.aspx?id=2317390&repo=CityOfLakeOswego&cr=1

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Filtering for physical constraints, staff then eliminated parcels with less than 0.40 developable acres.

Developable acres are those unconstrained by steep slopes (> 25%), water bodies, FEMA flood hazard areas, the greenway management overlay district along the Willamette River, or sensitive lands. This filter left 39 parcels categorized as vacant or partially vacant in the 212 Fire Management Area.

Task Force members then developed a list of seven criteria to narrow the search, identifying the characteristics below as those of the optimum fire station site:

1. Location.

o No sites west of the current location need further consideration.

o The far periphery of the east side can also be excluded from further consideration.

2. Zoning. Current zoning must allow for a major facility, or there needs to be a high likelihood a variance would be granted.

3. Access. The site should be on an arterial (major or minor) or major collector road.

4. Geohazards. A new station should not be located on a fault line or land with unmitigable landslide risk.

o Steep slopes, flood hazards, and sensitive lands have already been considered.

5. Size. A larger site, close to 41,000 square feet, would be ideal.

6. Response Time. An alternative site should result in a net improvement in response times city-wide, with significant improvements for the neighborhoods in the southeast quadrant of the city.

7. Acquisition. Non-public land may be considered, though acquisition costs and time are likely to have a significant impact.

o Avoiding condemnation was raised as a strong preference.

Staff reviewed the 39 remaining vacant or partially vacant parcels using this set of criteria. Ten were eliminated because they were west of the current station. Twelve were eliminated because they were on the far periphery of the east side. The remaining 17 parcels all were zoned to permit a major public facility via conditional use permit.

Only 1 of the remaining parcels was located along a high-volume road. This site, along Stafford Road, was analyzed using the remaining four criteria.

Figure 20. There was one parcel, along Stafford Rd, that met the criteria of a viable alternative.

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Stafford Road Alternative.

This site is in a landslide area with weak foundation soil. It has slightly more than one acre of developable land ( 44,694 square feet), more than the 40,000sf identified by the Task Force as ideal. Locating a station at this site is projected to result in a slight improvement (< 0.5%) in city-wide response times while disproportionately slowing response times to the far-east end of the 212-fire management area (Mary’ s Landing neighborhood), resulting in an FMA-level response time slow-down of 3.43%. A single- family home is currently situated on this parcel and the cost of acquisition is projected to exceed $1.5 million with condemnation being the likely mode of acquisition.

McVey- Cornell Alternative.

Staff also attempted to find the site that would yield the best possible response times, for comparison, without regard for land availability. This location was determined to be at the intersection of McVey Ave and Cornell St. This site yielded a 3.15% improvement in city-wide response time ( bringing 99.05% of Lake Oswego residences under the six-minute drive time threshold) but would require the acquisition of at least five homes, almost certainly through condemnation, resulting in significant cost, time, and reputational impacts.

Optimum Location.

Members of the Task Force unanimously selected the current site as the optimum location for a fire station rebuild.

They voted to classify the Stafford Rd site as their preferred alternative, specifying that the current site is significantly preferred to the Stafford Rd site.

The McVey-Cornell option was considered non-viable due to the lack of available land.

Figure 21. Analysis of Alternative One (Stafford Rd).

Figure 22. Analysis of Alternative Two (McVey-Cornell).

Figure 23. Analysis of Current Site.

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In Tables 7-13, the percentage of residences within a six-minute drive-time are circled.

Table 7 summarizes the circled portion of Tables 8-13, in order.

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F i g u r e 25 D r i v e t i m e c o v e r a g e i f S t a t i o n 2 1 2 w e r e re p l a c e d b y a n e w s t a t i o n a t t h e i n t e r s e c t i o n o f M c V e y A v e a n d C o r n e l l S t i l l u s t r a t e d u s i n g E s r i d r i v e t i m e d a t a w i t h 4 6 a n d 8 m

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Renovating the Existing Facility. Renovation, in this discussion, is considered the repair or improvement of the existing facility while rebuilding involves the complete demolition of the old facility and the construction of a replacement.

When considering this question, Task Force members coalesced around the perspective that it is preferential to renovate a structure when some portion of the original remains useable. Task Force members then talked through the spaces in the existing facility and were unable to identify a single structural feature worth building around.

Living Quarters. Station 212’s living quarters are made of unreinforced cinder blocks. This is not seismically sound, and reinforcement would not be cost effective. Further, this space wraps around the back of the apparatus bay, making retrofitting a pull-through bay impossible. For these reasons alone, renovation of the living quarters is not recommended.

Apparatus Bay. The existing apparatus bay has been seismically reinforced. However, it is not the adequate length or width to accommodate the future needs of the companies housed at this station. If modified, it would be to such an extent that it is hard to imagine the existing reinforced bay offering any substantial cost savings. The bay is positioned near the back corner of the existing lot, making expansion infeasible and the possibility of a pull-through bay likely impossible.

Figure 26. At the existing facility, the living quarters (red) surround the apparatus bay.

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Closing Station 212 + Contracting for Service. Key Finding 2 establishes that closing Station 212 would leave a hole in the City’s emergency response network. This is, however, an incomplete picture of the emergency services that support Lake Oswego residents.

TVF& R. Staff explored the possibility of contracting for service with Tualatin Valley Fire & Rescue TVF& R) which provide fire and medical service to the residents both south and west of Lake

Oswego. TVF& R is Lake Oswego’ s closest mutual aid partner, regularly responding to calls within City limits, which LOFD reciprocates.

TVF& R has two stations close to Lake Oswego: Station 55 on Hidden Springs Rd in West Linn and Station 39 on McEwan Rd. Staff repeated the drive time analysis outlined in Key Finding 2, including these stations, and found they would do little to mitigate the slower drive times that would result from Station 212 closing. See Figures 28 and 29.

AMR. American Medical Response AMR) already provides medical care and transport for Lake Oswego residents, responding to many of the same calls as LOFD. While Clackamas County contracts with LOFD to “stop the clock” for AMR on medical calls, the City could, instead, contract with AMR to stage an additional ambulance in the 212 Fire Management Area. This could maintain rapid response times for the vast majority of high acuity calls but would create a unique set of costs and inconsistent levels of community oversight (the City Council would continue to oversee LOFD but not AMR).

Staff found that neither partnership would be a viable permanent replacement for a fire station in the southeast quadrant of Lake Oswego. However, contracting for service may be a viable strategy for maintaining coverage levels during construction.

Notes on Transition Planning. If a new fire station is constructed on the current site, LOFD would develop a plan to maintain service levels for all residents during construction. Possible strategies include:

Phasing construction to enable the station to remain online.

Creating temporary quarters and apparatus storage elsewhere in the 212 FMA.

Rehousing the 212 crew at an adjacent firehouse ( 211 or 214) and contracting for additional service with partners.

LOFD will assess transition coverage options after preliminary site designs are developed, as the facility design, along with land acquisition decisions, will affect the feasibility of each strategy listed above.

Depending on the method( s) selected, these costs may add to the total bond amount.

Figure 27. AMR holds an exclusive franchise agreement with Clackamas County to provide medical transport service.

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F i g u r e 28 C u r r e n t d r i v e t i m e c o v e r a g e i n c l u d i n g T V F R s t a t i o n s 3 9 a n d 5 5 i l l u s t r a t e d u s i n g E s r i d r i v e t i m e d a t a w i t h 4 6 a n d 8 m

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F i g u r e 29 D r i v e t i m e c o v e r a g e i f S t a t i o n 2 1 2 w e r e d e c o m m i s s i o n e d in c l u d i n g T V F R s t a t i o n s 3 9 a n d 5 5 i l l u s t r a t e d u s i n g E s r i d r i v e t i m e d a t a w i t h 4 6 a n d 8 m

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Site Needs. With approximately 14,000 square feet needed to accommodate the spatial program outlined in the previous section, and a maximum allowable lot coverage of 35% at the current site, the ideal lot size for a 50-year fire station would be approximately 40,000 square feet.

Current Site. The site of the existing fire station ( 1880 South Shore Blvd) and the City-owned lot immediately to the east total approximately 31,500 square feet (0.72 acres).

Two Stories. The lot coverage issue could be addressed by building a two-story fire station, with bunk rooms on a second floor and living space level with the apparatus bay and multipurpose room on the ground floor. The drawbacks of a two-story fire station include the potential for slightly slower response times (<10 seconds) and additional cost.

Adjacent City-Owned Land. The City owns an additional parcel (1.3 acres) directly to the east of the two lots currently recommended as the site for the new fire station. This land is available for construction staging but not for building, as it is slated to house a new water reservoir.

Neighboring Lot. Directly to the west of the South Shore Fire Station is a privately-owned parcel that is approximately 15,800 square feet. The owners of this home are supportive of the South Shore Fire Station project and shared with staff that they would be “willing sellers” if their land is needed for expansion of the fire station.

No acquisition price has been discussed but a preliminary analysis by staff puts the total cost of acquisition and demolition under $1 million.

Acquisition Considerations. There is a moderate grade differential between the neighboring lot to the west and the South Shore Fire Station lot. Project staff would need to contract with technical experts to determine if the grade differential can be mitigated in a way that is cost effective. Technical assessment is also needed to determine the potential benefits of an expanded site – it is possible that more land would enable a station with better organization and more programmatic elements, but the extent to which this is true is not known.

Articulating a preference for investing more up front to avoid the need for renovation or expansion in the future, members of the Task Force recommend contracting for professional services to determine the benefits, feasibility, and cost of acquiring the lot directly to the west of the current fire station.

Figure 30. The current site of Station 212 is shown in red (31,500sf); the City’s water reservoir parcel is shown in blue (57,000sf); the privately-owned parcel considered for acquisition is shown in yellow (15,800sf).

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Numbers in Context.

Function of this estimate. The purpose of a preliminary cost estimate is to determine project scale.

Relying solely on the cost of comparable projects, it does not include a single specific design element and therefore cannot be value engineered. Adjusting the projected square footage significantly changes the total anticipated cost. However, this exercise yields no functional benefit as the utility of the preliminary cost estimate is limited to work occurring up to the first City Council checkpoint.

Task Force Usage. Members of the Task Force used preliminary cost estimates to consider the trade-offs of designing a station scaled to accommodate future community needs v. one pared-down to exclusively remedy existing issues.

Task Force members found that the inclusion of future-looking facility elements ( overflow dorms, additional bay space) would significantly extend the length of time the facility could operate without major renovation or expansion, while requiring approximately 2,000 square feet of additional space.

Considering the cost associated with the inclusion of these elements, Task Force members found that investing in these features during a rebuild would be prudent, the long- term benefits and cost-savings outweighing the up-front costs.

Method. Staff used a standard industry practice for developing a preliminary cost estimate: finding the cost per square foot of comparable projects, escalating to the projected mid-point of construction, and multiplying by the estimated square footage.

What is included in this number? All construction costs (hard costs) and project management and design costs (soft costs) are included in this estimate. Site work, while not specifically outlined, is accounted for by this method, as is demolishing the existing facility, and escalation.

What is excluded from this number? Costs associated with financing this project ( selling the bond), maintaining service in the fire management area while this station is under construction, and acquiring land are all excluded from this estimate. These will all be accounted for in a Phase Two cost estimate.

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Cost per Square Foot. Staff reviewed the costs associated with constructing fifteen comparable projects thirteen recently- constructed fire stations, plus Lake Oswego City Hall and the Lake Oswego Recreation and Aquatic Center.

Excluding one outlier, the average cost per square foot of constructing these fire stations, in 2025 dollars, is $ 853/ sf. Recognizing the potential for above-average site work ( grading bedrock, construction of retaining walls, rebuilding an ADA-compliant pathway), staff opted to use a hard cost range of $850-

900/ sf for cost estimating.

At this phase, soft costs are calculated as a percentage of hard costs. The industry standard for generating preliminary cost estimates is 30%. This puts the total cost per square foot range at $1,105-$1,170/ sf, in 2025 dollars.

Finally, to account for a construction mid-point during 2027, staff escalated this estimate to 2027 dollars.

Construction costs have fluctuated significantly in the last five years, but the current industry standard for cost-estimating is to use 3-5% annual escalation. Applying a 5% escalator twice yields our functional cost per square foot range of $1,218 - $1,290/ sf.

Figure 31. The Mortenson CCI shows a steady increase ( 1-2%) over the last three years. The average annual increase for the last five years is 4.7%.

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Total Project Cost. Applying this cost per square foot multiplier to the square footage estimate calculated in Key Finding 4 ( 13,958sf) produces a total preliminary project cost estimate of $ 17,000,844 -

18,005,820. Rounded to $17-$18 million.

This estimate rests on conservative assumptions which, if modified, could produce a lower project cost estimate. For example, using 3% annual escalation would reduce both ends of the range by approximately $ 700,000. Reducing square footage by 1,000 square feet takes $ 1.2M off the bottom end of the range and $ 1.3M on the top. Soft costs of 20% lead to reductions of $1.3- 1.4M. Taken together, these three modifications would produce a project cost estimate in the range of $14-15M.

Staff recommend continuing to use conservative assumptions for the preliminary cost estimate. The second phase of cost estimating, which will lead to the final bond number, will be generated independently from the preliminary cost estimates.

Next-level cost estimate. One of the primary bodies of work in the second phase of this project, which the Task Force recommends the City Council pursue, is the development of a specific project estimate.

This work requires contracting for professional services – hiring an owner’ s representative and architect to develop preliminary facility designs, then a general contractor or cost consultant to provide line-item cost estimates for our specific project.

In this phase, the architect team will assess site constraints, developing a layout that incorporates as many of the recommended elements as possible while identifying efficiencies to reduce the total size and cost.

Through this process, they will also identify the scale of the site work needed to support this project, which is a critical cost and design consideration we have not yet explored.

This design ( or possibly these designs, if Council directs staff to further explore the possibility of land acquisition) will be shared with a general contractor or cost consultant who will develop a line-by-line cost estimate. Staff will escalate the cost, based on the anticipated start-date of construction, and provide this cost estimate to the City Council.

The City Council would review the preliminary project design( s) and cost estimate( s), determining how much they are willing to ask voters to pay (setting a bond amount). Staff would then assess the feasibility of these constraints and return to the City Council with a recommended set of project modifications.

Members of the City Council would then decide whether or not to continue pursuing this project by referring a bond measure to the ballot.

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Recommendation. Members of the Task Force reviewed all traditional funding options for this project and concluded that a General Obligation ( GO) bond would be the most viable funding source.

The funding sources considered by the Task Force include relying on existing institutional resources department contingencies), applying for grants, and seeking contributions from stakeholders who may benefit from the project. The Task Force found that there would be significant downsides to draining the City’s reserves, and that the amount of available grant/ partnership funding would likely fall far short of the full project cost. For these reasons, along with the “affordability” of the bond ask, Task Force members recommended this as the most viable funding source for this project.

Funding for Recent City Projects. As a part of their review, Task Force members considered the funding methods behind three recent City projects:

The Lake Oswego Aquatic and Recreation Center LORAC) has been primarily funded through a general obligation bond ( Parks, 2019) and contributions from the Lake Oswego School District.

When the Parks bond was on the ballot in May 2019, it received 6,864 votes of support, passing with 62%. The total project cost is approximately

46 million, as of February 2025.

City Hall was primarily funded using urban renewal dollars, leveraging resources collected through the East End Urban Renewal District to complete the

41 million project in 2021.

The Lake Oswego Maintenance Center was completed in 2017 for $13.6 million. The funds for this project were primarily sourced from the City’ s restricted enterprise funds ( water fund, wastewater fund, stormwater fund, and street maintenance fund). While specific components of the South Shore Fire Station project may be supported with enterprise funds, the vast majority of project elements are ineligible.

Figures 32-34. From top to bottom: The Lake Oswego Aquatic and Recreation Center; Lake Oswego City Hall; and the Lake Oswego Maintenance Center.

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Annual Cost per Household. The 2025 total assessed value of Lake Oswego properties is approximately

9.3 billion. The City, when issuing bonds, generally opts for 20-year terms, resulting in interest rates between 4-4.5%.

For an $18 million bond, the millage rate increase – the amount of tax owed per $1,000 of assessed value would be approximately $ 0.16 based on 2025 conditions. In this example, the owner of a home with an assessed value of $600,000 would pay an additional $ 95 per year for 20 years ( without adjusting for changes to the assessed value of their home).

Arriving at a Bond Number. The preliminary cost estimates outlined in Key Finding 7…