HomeMy WebLinkAboutBozemanFireEMSFacilitiesIF
City of Bozeman Fire/EMS
Impact Fee Update Study
DRAFT REPORT
May 30, 2018
Prepared for:
City of Bozeman
121 North Rouse Avenue
Bozeman, Montana 59771
ph (406) 582-2260
Prepared by:
Tindale Oliver
1000 N. Ashley Dr., #400
Tampa, Florida, 33602
ph (813) 224-8862
E-mail: nkamp@tindaleoliver.com
497003-00.17
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Tindale Oliver City of Bozeman
May 2018 i Fire/EMS Impact Fee Update Study
City of Bozeman
Fire/EMS Impact Fee Update Study
Table of Contents
I. Executive Summary ....................................................................................... 1
II. Introduction ................................................................................................... 3
III. Inventory ....................................................................................................... 7
IV. Service Area and Population ........................................................................... 10
V. Level of Service .............................................................................................. 11
VI. Cost Component ............................................................................................. 12
VII. Credit Component .......................................................................................... 13
VIII. Demand Component ...................................................................................... 14
IX. Calculated Impact Fee Schedule ...................................................................... 16
X. Future Demand Analysis and Revenue Estimates ............................................ 18
APPENDIX A: Demographic and Economic Data and Analysis - Supplemental Information
APPENDIX B: Building and Land Value Analysis - Supplemental Information
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I. Executive Summary
Fire/EMS impact fees are used to fund capital expansion projects for fire/EMS service related
facilities, land, vehicles and capital equipment required to support the additional demand
created by new growth. The City of Bozeman Fire/EMS impact fees were last updated in
2012. To reflect the most recent and localized data, the City retained Tindale Oliver to
prepare an update of the fire/EMS impact fees.
The methodology used to update City’s impact fee program is a consumption-based impact
fee methodology. A consumption-based impact fee charges new development based upon
the burden placed on services from each land use (demand). A consumption-based impact
fee is intended to charge new growth the proportionate share of the cost of providing
additional infrastructure available for use by new growth. In addition, consistent with the
requirements of the Montana enabling legislation, a credit is subtracted from the total cost
to account for the value of future non-impact fee revenue contributions (taxes, user fees,
etc.) of the new development toward the construction of capacity expansion projects when
non-impact fee funding is used to build capital facilities.
The primary steps involved in the update of the fire/EMS impact fee included the following:
• Review of the inventory and establishment of the current level of service;
• Estimation of the current value of the facility inventory;
• Review of funding sources used for fire/EMS facility expansion projects;
• Calculation of the demand component; and
• Calculation of the updated fire/EMS impact fee.
Table ES-1 provides a summary of the calculated fees.
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Table ES-1
Calculated Fire/EMS Impact Fee Schedule
1) Source: Table 9
2) Total impact fee (Item 1) increased by 5 percent to account for the City's administrative fee
Property Type Unit Total Impact
Fee(1)
Total Impact
Fee with 5%
Admin. Fee(2)
Residential:
1,400 square feet or less du $269.39 $282.86
1,401 to 1,600 square feet du $276.71 $290.55
1,601 to 1,800 square feet du $284.04 $298.24
1,801 to 2,000 square feet du $291.36 $305.93
2,001 to 2,200 square feet du $298.68 $313.61
2,201 to 2,400 square feet du $306.00 $321.30
2,401 to 2,600 square feet du $311.85 $327.44
2,601 to 2,800 square feet du $319.17 $335.13
2,801 to 3,000 square feet du $326.49 $342.81
3,001 square feet or more du $346.99 $364.34
Group Quarters person $146.41 $153.73
Non-Residential
Industrial 1,000 gsf $43.92 $46.12
Retail, Accommodation and Food Services 1,000 gsf $406.28 $426.59
Health Care and Social Assistance 1,000 gsf $1,745.92 $1,833.22
All Other Services 1,000 gsf $435.57 $457.35
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May 2018 3 Fire/EMS Impact Fee Update Study
II. Introduction
Fire/EMS impact fees are used to fund capital expansion projects for fire/EMS service related
facilities, land, vehicles and capital equipment required to support the additional demand
created by new growth. The City of Bozeman Fire/EMS impact fees were last updated in
2012. The City retained Tindale Oliver to prepare an update study to reflect the changes in
cost, credit and demand components since the last update study. It should be noted that
figures calculated in this study represent the technically maximum level of impact fees that
the City could charge; however, the City Commission may choose to discount the fees as a
policy decision.
Methodology
The methodology used to update the fire/EMS impact fee is a consumption-based impact fee
methodology. A consumption-based impact fee is intended to charge new growth the
proportionate share of cost associated with providing fire/EMS facilities available for use by
new growth. In addition, consistent with the requirements of Montana enabling legislation,
a credit is subtracted from the total cost to account for the value of future non-impact fee
revenue contributions (taxes, user fees, etc.) of the new development toward the
construction of capacity expansion projects when non-impact fee funding is used to build
capital facilities.
Legal Standard Overview
The impact fees recommended in this report have been developed in compliance with the
Montana Impact Fee Act (Montana Code Annotated (MCA) Section 7-6-1602) by
demonstrating, first that the need for system improvements to be funded with impact fee
revenues results from and reasonably relates to the demands of new development. Second,
the impact fee program has been developed to ensure that the expenditure of impact fee
revenues will be reasonably related to the benefits accruing to new development paying the
impact fees.
Table 1 presents specific documents/analysis that address the requirements of the Impact
Fee Act.
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Table 1
Compliance with Montana Impact Fee Statute (Sec. 7-6-1602) MCA
Section
Reference Documentation Item Document(s)Section
(1)
For each public facility for which an impact fee is
imposed, the governmental entity must prepare and
approve a service area report
2018 City of Bozeman
Fire/EMS Impact Fee
Update Study (2018 IF
Study)
N/A
(2)The service area report is a written analysis that
(2)(a)describe existing conditions of the facility;Fire & EMS Master
Plan, August 2017 Section 3
(2)(b)establish level-of-service standards;FY 2018 Approved
Budget Departmental Summaries: Fire
(2)(c)forecast future additional needs for service for a
defined period of time;
Fire & EMS Master
Plan, August 2017
Bozeman Fire Master Plan
Implementation
Recommendations
Fire & EMS Master
Plan, August 2017
Bozeman Fire Master Plan
Implementation
Recommendations
FY 2018-2022 Capital
Improvement Program Fire Impact Fee CIP
Fire & EMS Master
Plan, August 2017
Bozeman Fire Master Plan
Implementation
Recommendations
FY 2018-2022 Capital
Improvement Program
Fire Equipment and Capital Fund
CIP
(2)(f)
make a determination as to whether one service area
or more than one service area is necessary to establish
a correlation between impact fees and benefits;
2018 IF Study Section III (Service Area and
Population)
(2)(g)
make a determination as to whether one service area
or more than one service area for transportation
facilities is needed to establish a correlation between
impact fees and benefits;
N/A N/A
Fire & EMS Master
Plan, August 2017
Bozeman Fire Master Plan
Implementation
Recommendations
FY 2018-2022 Capital
Improvement Program Fire Impact Fee CIP
(2)(i)
establish the methodology that the governmental
entity will use to exclude operations and maintenance
costs and correction of existing deficiencies from the
impact fee;
2018 IF Study Sections IV and V (Level of
Service and Cost Component)
(2)(j)
establish the amount of the impact fee that will be
imposed for each unit of increased service demand;
and
2018 IF Study Section VIII (Calculated Impact
Fee Schedule)
(2)(k)
have a component of the budget of the governmental
entity that:
(i) schedules construction of public facility capital
improvements to serve projected growth;
(ii) projects costs of the capital improvements;
(iii) allocates collected impact fees for construction of
the capital improvements; and
(iv) covers at least a 5-year period and is reviewed and
updated at least every 5 years
FY 2018-2022 Capital
Improvement Program Fire Impact Fee CIP
(2)(d)identify capital improvements necessary to meet future
needs for service;
(2)(e)identify those capital improvements needed for
continued operation and maintenance of the facility;
establish the methodology and time period over which
the governmental entity will assign the proportionate
share of capital costs for expansion of the facility to
provide service to new development within each service
area;
(2)(h)
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Table 1 (Continued)
Compliance with Montana Impact Fee Statute (Sec. 7-6-1602) MCA
Section
Reference Documentation Item Document(s)Section
(3)
The service area report is a written analysis that must
contain documentation of sources and methodology
used for purposes of subsection (2) and must document
how each impact fee meets the requirements of
subsection (7)
2018 IF Study
Each subsection of report
includes sources for reference
and address various components
of subsection (7) (see below)
(4)
The service area report that supports adoption and
calculation of an impact fee must be available to the
public upon request
2018 IF Study
The impact fee technical report
will be adopted through a public
hearing process and all
documents will be made
available by the City of Bozeman
(5)
The amount of each impact fee imposed must be based
upon the actual cost of public facility expansion or
improvements or reasonable estimates of the cost to be
incurred by the governmental entity as a result of new
development. The calculation of each impact fee must
be in accordance with generally accepted accounting
principles
2018 IF Study
Section V (Cost Component) and
Appendix B (Building and Land
Value - Supplemental
Information)
(6)
The ordinance or resolution adopting the impact fee
must include a time schedule for periodically updating
the documentation required under subsection (2)
City of Bozeman
Fire/EMS Impact Fee
Ordinance
Will be included in the adopted
ordinance
An impact fee must meet the following requirements:
(a) The amount of the impact fee must be reasonably
related to and reasonably attributable to the
development's share of the cost if infrastructure
improvements made necessary by the new development
2018 IF Study
Section IV (Level of Service),
Section V (Cost Estimates),
Section VI (Credit Component)
Fire & EMS Master
Plan, August 2017
Bozeman Fire Master Plan
Implementation
Recommendations
FY 2018-2022 Capital
Improvement Program Fire Impact Fee CIP
(ii) consideration of payments for system
improvements reasonably anticipated to be made by or
as a result of development in the form of user fees, debt
service payments, taxes, and other available sources of
funding the system improvements
2018 IF Study Section VI (Credit Component)
(c) Costs for correction of existing deficiencies in a
public facility may not be included in the impact fee 2018 IF Study
Section IV (Level of Service) &
Section X (Future Demand
Analysis)
(d) New development may not be held to a higher level
of service than existing users unless there is a
mechanism in place for the existing users to make
improvements to the existing system to match the
higher level of service
2018 IF Study
Section IV (Level of Service) &
Section X (Future Demand
Analysis)
(e) Impact fees may not include expenses for operations
and maintenance of the facility 2018 IF Study Section V (Cost Component)
(7)
(b) The impact fees imposed may not exceed a
proportionate share of the costs incurred or to be
incurred by the governmental entity in accommodating
the development. The following factors must be
considered in determining a proportionate share of
public facilities capital improvement costs;
(i) the need for public facilities capital improvements
required to serve new development; and
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This technical report has been prepared to support legal compliance with the existing
statutory requirements. The technical report also documents the methodology components
for the fire/EMS impact fee, including an evaluation of the inventory, service area and
population, cost, credit, and demand components. Information supporting this analysis was
obtained from the City and other sources, as indicated. The study’s methodology is
documented in the following sections of this technical report:
Inventory
Service Area and Population
Level of Service
Cost Component
Credit Component
Demand Component
Calculated Impact Fee Schedule
Future Demand and Revenue Analysis
These various elements are summarized in the remainder of this report, with the result being
the calculated fire/EMS impact fee schedule.
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III. Inventory
The City of Bozeman provides fire/EMS related services from 3 stations with 26,069 square
feet, located on 1.56 acres of land. The City of Bozeman Fire/EMS buildings and land
inventory is presented in Table 2.
The station building value estimate is based on recent bids/estimates for a new station in
the neighboring City of Belgrade, insurance values of existing stations, information from
other jurisdictions, and discussions with the City’s Fire Department. Based on this review,
an estimated station cost per square foot of $350 is used in the inventory valuation.
The land value estimate is based primarily on land values of existing facilities and current
land value estimates of vacant land of similar size to the City’s current inventory of stations,
as reported by the Montana Department of Revenue (MTDOR). This analysis resulted in an
estimated land value of $200,000 per acre.
As shown in Table 2, the total building and land inventory value is estimated at $9.4 million;
of which, $9.1 million represents building value and the remaining $310,000 land value.
Appendix B provides a more detailed explanation of building and land value estimates.
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Table 2
Fire/EMS Building and Land Inventory
1) Source: City of Bozeman
2) Building square footage (Item 1) multiplied by the estimated building value per square foot (Item 6)
3) Total acres (Item 1) multiplied by land value per acre (Item 7)
4) Sum of building value (Item 2) and land value (Item 3)
5) Building square footage and acreage figures shown are the portion associated with fire/EMS services and exclude Gallatin County’s 911 center
6) Source: Appendix B
7) Source: Appendix B
Facility(1)Address(1)Year Built(1)# Bays(1)
Building
Square
Footage(1)
Total Acres(1)Building
Value(2)Land Value(3)
Total Building
and Land
Value(4)
Fire Station 1 34 N. Rouse Ave, Bozeman, MT 59715 1964 4 9,716 0.45 $3,400,600 $90,000 $3,490,600
Fire Station 2 410 S. 19th Ave, Bozeman, MT 59715 1976 2 3,785 0.38 $1,324,750 $76,000 $1,400,750
Fire Station 3(5)1705 Vaquero Pkwy, Bozeman, MT 59718 2010 3 12,568 0.73 $4,398,800 $146,000 $4,544,800
Total Value 26,069 1.56 $9,124,150 $312,000 $9,436,150
Building Value per Square Foot(6)$350
Land Value per Acre(7)$200,000
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In addition to the land and buildings inventory, the City of Bozeman Fire Department also has
the necessary equipment and vehicles to perform its fire/EMS services duties. Table 3
summarizes the total equipment and vehicle inventory value. As shown, the asset value of
fire/EMS service related equipment and vehicles is estimated to total $3.9 million.
Discussions with the City’s staff indicated that the estimated cost of the vehicle inventory
includes necessary equipment for larger vehicles such as fire engines and ladder trucks, but
not equipment for their smaller fleet such as their support vehicles. City staff also indicated
that the capital cost of equipment associated with the smaller fleet is insignificant and thus
not incorporated in the vehicle cost.
Table 3
Fire/EMS Vehicle and Equipment Inventory
1) Source: City of Bozeman.
2) Total value (Item 3) divided by number of vehicles (Item 1)
3) Source: City of Bozeman. Value of equipment is included within the total
value of for larger vehicles, such as the fire engine and ladder truck, but not
within the value of smaller vehicles such as the support vehicles.
Vehicle Type Number of
Vehicles(1)
Cost per
Vehicle(2)Total Value(3)
Ambulance 1 $150,000 $150,000
Brush Truck 1 $125,000 $125,000
Engine 3 $600,000 $1,800,000
Hazmat Freightliner 1 $125,000 $125,000
Ladder 1 $1,300,000 $1,300,000
Support Vehicles 9 $41,111 $370,000
Hazmat Trailer 1 $50,000 $50,000
Total 17 -$3,920,000
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IV. Service Area and Population
The City of Bozeman Fire Department provides fire/EMS related services to all areas within
the city limits of Bozeman. Therefore, the proper benefit district for the provision of fire/EMS
services is the entire jurisdiction. For impact fee calculations, consistent with the current
adopted methodology, both call data and population are used. Appendix A provides further
detail on the population analysis conducted.
Table 4 presents the relationship between population growth, fire/EMS calls, and the need
for additional fire/EMS related services. As shown, as the City’s population has increased,
the number of fire/EMS related calls has grown as well.
Table 4
Population and Call Trend (2012-2016)
1) Source: Appendix A, Table A-1
2) Annual percentage change in population level (Item 1) or total call count (Item 4) for successive years
3) Average of annual percentage change in population or total call count for two successive years
4) Source: City of Bozeman. Total count of calls includes all calls regardless of property use type within
the City of Bozeman.
As presented in Appendix A, Bozeman’s population is projected to increase from 44,000 in
2018 to 72,300 in 2040, an increase of almost 65 percent. This new population will place
additional burden on fire/EMS services and infrastructure. As outlined in the City’s Fire &
EMS Master Plan completed in 2017, to address the growing needs, the City will need to
demolish and rebuild/expand Stations 1 and 2, and build a fourth station in the western part
of the city.
Level(1)%-Change(2)Two-Year
Average(3)
Total
Count(4)%-Change(2)Two-Year
Average(3)
2012 37,924 --3,203 --
2013 38,514 1.6%-3,534 10.3%-
2014 39,440 2.4%2.0%3,538 0.1%5.2%
2015 40,646 3.1%2.8%3,875 9.5%4.8%
2016 42,100 3.6%3.4%4,261 10.0%9.8%
Seasonal Population
Year
Calls
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V. Level of Service
Although fire departments measure level of service in terms of response time, for impact fee
calculation purposes, the current level of service (LOS) for capital facilities is calculated based
on stations per person.
As shown in Table 5, the current level of service provided by the City of Bozeman is almost
15,000 people per station or 0.068 stations per 1,000 people.
Table 5
Current Level of Service (2018)
1) Source: Appendix A, Table A-1
2) Source: Table 2
3) Population (Item 1) divided by the number of stations (Item 2)
4) Number of stations (Item 2) divided by the population (Item 1)
divided by 1,000
Table 6 presents a LOS comparison between the City of Bozeman and selected communities
in Montana. The LOS is expressed in terms of permanent population for 2016, which is the
most current information available for all of the jurisdictions. As presented, the City of
Bozeman has a higher LOS (stations per 1,000 residents) among the other Montana
communities with similar levels of population.
Variable Figure
2018 Weighted Seasonal Population(1)44,041
Number of Stations(2)3
Population per Station(3)14,680
Current LOS (Stations per 1,000 Population)(4)0.068
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Table 6
Level of Service Comparison (2016)
1) Source: Each jurisdiction's respective fire department
2) Source: 2012-16 ACS, 5-Yr. Estimate; Total Population, Table B01003
3) Total number of stations (Item 1) divided by total 2016 population (Item 2)
4) Total number of stations (Item 1) divided by total 2016 population (Item 2) multiplied by 1,000
* Excludes the Town of Walkerville which provides its own fire rescue services
VI. Cost Component
The cost component of the study evaluates the cost of all capital items, including buildings,
land, and vehicles and equipment. Table 7 provides a summary of all capital costs, which
amounts to approximately $13.4 million or $4.5 million per station.
As presented, the total impact cost is estimated at $3,660 per call, which is calculated by
dividing the total asset value of $13.4 million by the average annual number of fire/EMS
related calls over the past five years (2012-16). The average annual number of calls used in
the cost and demand components exclude calls to fire stations, jails, and police stations as
these properties are exempt and their square footage is not included in the MTDOR Property
Database. Please see the demand section for further detail.
This high cost per call is reflective of fire departments’ utilization levels. Industry standards
suggest that fire personnel should not be utilized more than 30 percent of the available time
to prevent fatigue, allow for availability in the case of simultaneous incidents and personnel
training for effective fire services that meet the response time goals.
Jurisdiction
Total
Number of
Stations(1)
2016
Permanent
Population(2)
Residents per
Station(3)
LOS
Calculation(4)
Butte-Silver Bow City-County*2 33,708 16,854 0.059
City of Billings 7 109,089 15,584 0.064
City of Great Falls 4 59,479 14,870 0.067
City of Helena 2 30,102 15,051 0.066
City of Missoula 5 70,117 14,023 0.071
City of Bozeman 3 41,761 13,920 0.072
City of Kalispell 2 21,619 10,810 0.093
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May 2018 13 Fire/EMS Impact Fee Update Study
Table 7
Total Impact Cost
1) Source: Table 2
2) Source: Table 3
3) Sum of building, land, and vehicle and equipment value (Items 1 and 2)
4) Total asset value (Item 3) divided by the number of stations
5) Source: Table 8, represents the average annual number of calls between 2012 and
2016.
6) Total asset value (Item 3) divided by the average annual number of calls (Item 5)
7) Distribution of building, land, and vehicle and equipment values
VII. Credit Component
A review of the City’s historical and future expenditures indicated that the impact fees were
the only source of revenue for capacity projects over the past five years and that there are
no capital expansion projects programmed to be funded with non-impact fee revenues over
the next five years. Additionally, the City’s staff indicated that there is no outstanding debt
related to the capital expansion of fire/EMS facilities. As such, a credit is not necessary and
the net impact cost is the same as the total cost, $3,660 per call.
Component Asset Value Percent of
Total Value(7)
Building Value(1)$9,124,150 68.4%
Land Value(1)$312,000 2.3%
Vehicle and Equipment Value(2)$3,920,000 29.3%
Total Asset Value(3)$13,356,150 100.0%
Number of Stations(1)3
Total Asset Value per Station(4)$4,452,050
Average Annual Number of Calls(5)3,649
Total Impact Cost per Call(6)$3,660.22
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VIII. Demand Component
In determining the impact fee for each land use on a per call basis, it is necessary to determine
the service delivery to residential and non-residential land uses. In developing the call-based
demand, the average annual calls by land use between 2012 and 2016 were reviewed. The
following calls were excluded from the analysis:
Calls to outside of the City of Bozeman, which represented an average of 30 fire/EMS
calls per year.
Calls to exempt properties were excluded because the MTDOR does not track building
square footage for them. These include:
o NFIRS Property Use Code 361 – Jail, Prison (not juvenile) which averaged 29 calls
per year;
o NFIRS Property Use Code 365 – Police Station which averaged 4 per year; and
o NFIRS Property Use Code 888 – Fire Station which averaged 1 per year.
With the exclusion of calls assigned to these land uses, the total annual average number of
calls is reduced from 3,683 to 3,649. Of the 3,649 calls, 2,734 could be assigned to a land use.
The remaining 915 calls were undetermined/outdoor (calls to streets, highways, construction
sites, etc.). In order to assign all calls to the appropriate land uses, the percentage distribution
of assigned calls is utilized in allocating unassigned calls to a land use. Table 8 presents this
analysis.
The final step in the demand calculations involves the calculation of calls per units of
development, which is also presented in Table 8. As mentioned previously, residential
demand is dependent upon population which is discussed in Appendix A. A review of the
MTDOR Property Database was conducted to determine the square footage of non-
residential land uses. As shown, the total gross area (less basement) of non-residential land
uses within the City of Bozeman amount to nearly 14.1 million square feet, with retail,
accommodation and food services and other (offices, banks, etc.) properties comprising the
largest portions of this total. The MTDOR calculates gross square footage using the exterior
measurements of the building as the appraisers do not always have access to the interior of
a property.
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May 2018 15 Fire/EMS Impact Fee Update Study
Table 8
Call Based Demand Calculation
1) Source: City of Bozeman Fire Department. Represents the average annual calls between 2012 and 2016 within the City of Bozeman (excludes calls to outside municipalities,
average of 30 per year). Also excluded from the annual average number are calls to fire stations (NFIRS Property Use Code 888, average of 1 per year), police stations (NFIRS
Property Use Code 365, average of 4 per year), and the jail (NFIRS Property Use Code 361, average of 29 per year) because the Montana Department of Revenue does not
track their square footage data as they are exempt properties.
2) Percent of all assigned calls (2,734) for each land use
3) Distribution of assigned calls (Item 2) multiplied by the undetermined/outdoor number of calls (Item 8)
4) Sum of the average annual calls (Item 1) and the distribution of unassigned calls (Item 3)
5) Source: Montana Department of Revenue. Square footage figures represent the total gross square footage less the basement square footage assigned to each property type.
6) Source for residential, Appendix A, Table A-1. For non-residential, gross square footage less basement (Item 5) divided by 1,000.
7) Total calls (Item 4) divided by demand units (Item 6)
8) Source: City of Bozeman Fire Department. Undetermined/outdoor calls include calls to properties such as vacant lots, parking areas, campsites, streets, etc.
Property Type Demand
Unit
Average
Annual Calls
(2012-16)(1)
%
Distribution
(All Assigned
Uses)(2)
Distribution
of
Unassigned
Calls(3)
Total Calls(4)
Gross Square
Footage Less
Basement(5)
Demand
Units(6)
Calls per
Unit(7)
Assigned Calls
Residential persons 1,309 47.87%438 1,747 N/A 44,041 0.040
Industrial 1,000 gsf 21 0.77%7 28 2,332,700 2,333 0.012
Retail, Accommodation and Food Services 1,000 gsf 457 16.72%153 610 5,490,574 5,491 0.111
Health Care and Social Assistance 1,000 gsf 517 18.91%173 690 1,446,808 1,447 0.477
All Other Services 1,000 gsf 430 15.73%144 574 4,810,394 4,810 0.119
2,734 100.00%915 3,649 14,080,476
Calls Not Assigned to a Property Use
915
3,649
Subtotal - Assigned Calls/GSF
Undetermined/Outdoor(8)
Total Calls
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May 2018 16 Fire/EMS Impact Fee Update Study
IX. Calculated Impact Fee Schedule
Based on the analysis presented in this report, a fire/EMS impact fee schedule was developed
for residential and non-residential land uses. Table 9 presents the total impact fee by
property type.
To calculate the residential fee by tier, first the residential calls per person developed in Table
8 is multiplied by the impact cost per call developed in Table 7. As shown, this calculation
results in a net impact cost of $146 per resident. Next, the residential impact cost per person
of $146 is multiplied by the estimated population per housing unit of each tier. Appendix A
includes additional detail regarding the estimated population per housing unit by tier.
As mentioned previously, the demand for residential fees is based on the population per
housing unit. This demand was developed using data from the American Housing Survey
(AHS), which defines space as the square footage of unit, excluding unfinished attics, carports,
attached garages, porches that are not protected from weather (such as screened porches),
and mobile home hitches. Additionally, both finished and unfinished basements are included.
Residential impact fees should be assessed based on this definition.
To determine the impact fee for non-residential land uses, the total impact cost per call of
$3,660 is multiplied by the demand coefficients (calls per 1,000 square feet) developed
previously in Table 8. As mentioned in the previous section, total gross non-residential square
footage excludes basements and is measured using the exterior of the building. Non-
residential impact fees should be assessed based on this definition.
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Tindale Oliver City of Bozeman
May 2018 17 Fire/EMS Impact Fee Update Study
Table 9
Calculated Fire/EMS Impact Fee Schedule
1) Source: Table 8
2) Source: Table 7
3) Residential calls per person (Item 1) multiplied by the impact cost per call (Item 2)
4) Source: Appendix A, Table A-4
5) Source: Table 8
6) For the residential tiers, residential impact cost per person (Item 3) multiplied by the population per housing
unit (Item 4). For group quarters and non-residential land uses, impact cost per call (Item 2) multiplied by
the calls per unit (Item 5)
7) Total impact fee (Item 6) increased by 5 percent to account for the City's administrative fee
Residential Calls per Person(1)0.040
Impact Cost per Call(2)$3,660.22
Residential Impact Cost per Person(3)$146.41
Property Type Unit
Population
per Housing
Unit(4)
Calls per
Unit(5)
Total
Impact
Fee(6)
Total Impact
Fee with 5%
Admin. Fee(7)
Residential:
1,400 square feet or less du 1.84 N/A $269.39 $282.86
1,401 to 1,600 square feet du 1.89 N/A $276.71 $290.55
1,601 to 1,800 square feet du 1.94 N/A $284.04 $298.24
1,801 to 2,000 square feet du 1.99 N/A $291.36 $305.93
2,001 to 2,200 square feet du 2.04 N/A $298.68 $313.61
2,201 to 2,400 square feet du 2.09 N/A $306.00 $321.30
2,401 to 2,600 square feet du 2.13 N/A $311.85 $327.44
2,601 to 2,800 square feet du 2.18 N/A $319.17 $335.13
2,801 to 3,000 square feet du 2.23 N/A $326.49 $342.81
3,001 square feet or more du 2.37 N/A $346.99 $364.34
Group Quarters person N/A 0.040 $146.41 $153.73
Non-Residential
Industrial 1,000 gsf N/A 0.012 $43.92 $46.12
Retail, Accommodation and Food Services 1,000 gsf N/A 0.111 $406.28 $426.59
Health Care and Social Assistance 1,000 gsf N/A 0.477 $1,745.92 $1,833.22
All Other Services 1,000 gsf N/A 0.119 $435.57 $457.35
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Tindale Oliver City of Bozeman
May 2018 18 Fire/EMS Impact Fee Update Study
X. Future Demand Analysis and Revenue Estimates
Future demand projections are based on the cost estimates previously calculated as part of
the impact fee analysis, as well as, population projections presented in Appendix A, Table A-
1. As shown in Table 10, the total asset value per person is $303, which is a measure of
achieved LOS and represents the investment made by the existing population in Bozeman
into the fire/EMS infrastructure. Charging new development at that rate ensures that the
new development is not being charged for any deficiencies.
Given that the city population is expected to increase by almost 28,300 persons by 2040, an
investment of $8.6 million will be needed by 2040 to maintain the value of fire/EMS-related
assets currently provided by the City. If the actual future growth is higher, the need will be
greater. Similarly, if the City attracts less population than the estimates included in this study,
the need will be less.
Table 10
Future Demand Analysis
1) Source: Appendix A, Table A-1
2) Source: Appendix A, Table A-1
3) Difference between the 2040 and 2018 population (Items 2 and 1)
4) Source: Table 7
5) Total asset value (Item 4) divided by the 2018 population (Item 1)
6) Total asset value per resident (Item 5) multiplied by the additional residents added
(Item 3)
As presented in Table 11, in terms of impact fee revenues, the City generated
approximately $360,000 per year on average over the past five years. A review of recent
permitting activity and estimated growth levels along with calculated fire/EMS impact fee
levels suggest that the City is likely to generate $300,000 to $450,000 per year through
Variable Figure
2018 City of Bozeman Population(1)44,041
2040 City of Bozeman Population(2)72,320
Residents Added(3)28,279
Total Asset Value(4)$13,356,150
Total Asset Value per Resident(5)$303.27
Value of Additional Assets Needed to Meet 2040 Demand(6)$8,576,172
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Tindale Oliver City of Bozeman
May 2018 19 Fire/EMS Impact Fee Update Study
2040, or a total of $6.9 million to $10.4 million over the next 23 years. These figures are in
2018 dollars, without any indexing or fee adjustments.
Table 11
Historical Fire/EMS
Impact Fee Revenues
Source: City of Bozeman
Finally, it should also be noted that for impact fee purposes, revenue projections serve only
as an overall guideline in planning future infrastructure needs. In their simplest form,
impact fees charge each unit of new growth for the net cost (total cost less credits) of
infrastructure needed to serve that unit of growth. Theoretically, if the growth rates remain
high, the City will have more impact fee revenues to fund growth related projects sooner
rather than later. If growth rates slow down, less revenue will be generated and the timing
and need for future infrastructure improvements will be later rather than sooner.
Year
Fire/EMS
Impact Fee
Revenue
2006 $194,942
2007 $349,236
2008 $197,729
2009 $192,624
2010 $212,034
2011 $232,610
2012 $414,762
2013 $296,429
2014 $443,263
2015 $290,341
2016 $345,625
Average $288,145
Avg. (2012-16)$358,084
DRAFT
Appendix A
Demographic and Economic Data & Analysis
Supplemental Information
DRAFT
Tindale Oliver City of Bozeman
May 2018 A-1 Fire/EMS Impact Fee Update Study
Appendix A
An understanding of demographic and economic data trends is necessary for the
development of an impact fee. This appendix provides supporting documentation on
historical population estimates and future growth, population per housing unit which is used
as the residential demand component, recent housing development, and finally job growth.
Population Projections
The fire/EMS impact fee program requires the use of population data in calculating the
current level of service and performance standards. With this in mind, a consistent approach
to developing population estimates and projections is an important component of the data
compilation process.
The American Community Survey (ACS) estimates Bozeman’s population at 41,761 in 2016,
which is an increase of 12 percent over the 2010 Census, and a 4-percent increase over the
2015 ACS estimate of 40,319. To estimate future population levels for the City of Bozeman,
projections presented in the City’s 2017 Master Transportation Plan were reviewed along
with historical estimates provided in the City’s recent 2017 Fire and EMS Master Plan, 2018
Adopted Budget, and 2016 Annual Financial Report.
For purposes of this impact fee study, future population growth estimates utilized in the 2017
Bozeman Transportation Master Plan is applied, which parallels the projected growth of
Gallatin County and is estimated by Woods and Poole Economics. The annual average growth
rate is estimated at 2.3 percent.
Given that the Bozeman Fire Department provides services to all residents and visitors, this
impact fee study considers not only the permanent population of the City, but also the
number of seasonal residents and visitors as well. Therefore, for purposes of this technical
analysis, the weighted seasonal population will be used in all population estimates and
projections. References to population contained in this report pertain to the weighted
seasonal population, unless otherwise noted. It is important to note that data related to
hotel/motel occupancy was not available. Therefore, seasonal population projections are
limited to the incorporation of seasonal home population, and are conservative compared to
the total seasonal population the City experiences.
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Tindale Oliver City of Bozeman
May 2018 A-2 Fire/EMS Impact Fee Update Study
Table A-1 presents the City’s historical and future population levels using data from the U.S.
Census, American Community Survey, as well as, the future population growth estimated in
the 2017 Bozeman Transportation Master Plan, as previously mentioned. As shown, the 2018
weighted average seasonal population of the City is 44,041 and is projected to reach 72,320
by 2040, an increase of almost 65 percent.
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Tindale Oliver City of Bozeman
May 2018 A-3 Fire/EMS Impact Fee Update Study
Table A-1
City of Bozeman Population Projections
1) Source: 2000 & 2010 U.S. Census, 2007 through 2015 American
Community Survey (3-Year and 5-Year estimates), and the 2017
Bozeman Transportation Master Plan for the annual average growth
rate (2.3 percent) for 2017 through 2040.
2) Source: 2000 and 2010 U.S. Census
3) Sum of permanent population (Item 1) and seasonal population (Item
2)
4) Annual population change between two successive years (Item 3)
Year Permanent
Population(1)
Seasonal
Population(2)
Total Weighted
Seasonal Pop.(3)
Annual %-
Change(4)
2000 27,509 100 27,609 -
2001 28,453 104 28,557 3.4%
2002 29,429 108 29,537 3.4%
2003 30,438 111 30,549 3.4%
2004 31,482 115 31,597 3.4%
2005 32,562 119 32,681 3.4%
2006 33,679 123 33,802 3.4%
2007 34,836 127 34,963 3.4%
2008 35,538 130 35,668 2.0%
2009 36,398 133 36,531 2.4%
2010 37,280 302 37,582 2.9%
2011 37,070 300 37,370 -0.6%
2012 37,619 305 37,924 1.5%
2013 38,204 310 38,514 1.6%
2014 39,123 317 39,440 2.4%
2015 40,319 327 40,646 3.1%
2016 41,761 339 42,100 3.6%
2017 42,713 346 43,059 2.3%
2018 43,687 354 44,041 2.3%
2019 44,683 362 45,045 2.3%
2020 45,702 370 46,072 2.3%
2021 46,744 379 47,123 2.3%
2022 47,810 388 48,198 2.3%
2023 48,900 396 49,296 2.3%
2024 50,015 405 50,420 2.3%
2025 51,155 415 51,570 2.3%
2026 52,321 424 52,745 2.3%
2027 53,514 434 53,948 2.3%
2028 54,734 444 55,178 2.3%
2029 55,982 454 56,436 2.3%
2030 57,258 464 57,722 2.3%
2031 58,563 475 59,038 2.3%
2032 59,898 486 60,384 2.3%
2033 61,264 496 61,760 2.3%
2034 62,661 508 63,169 2.3%
2035 64,090 520 64,610 2.3%
2036 65,551 531 66,082 2.3%
2037 67,046 543 67,589 2.3%
2038 68,575 556 69,131 2.3%
2039 70,139 569 70,708 2.3%
2040 71,738 582 72,320 2.3%
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Tindale Oliver City of Bozeman
May 2018 A-4 Fire/EMS Impact Fee Update Study
Population per Housing Unit
The fire/EMS impact fee demand component for residential development is dependent on
the number of persons per housing unit (PPH). To estimate the PPH, the 2016 ACS estimate
for population in occupied housing units and total housing units by housing type were
reviewed. As summarized in Table A-2, Bozeman’s weighted average population per housing
unit amounts to 2.02 with single family homes generating an average of 2.34 people per
housing unit, multi-family homes generating 1.66 people per housing unit, and mobile homes
generating 1.98 people per housing unit.
Table A-2
Population per Housing Unit
1) Source: 2012-2016 American Community Survey 5-Year Estimates, Table B25033 (adjusted for
seasonal population)
2) Source: 2012-2016 American Community Survey 5-Year Estimates, Table B25024
3) Population (Item 1) divided by housing units (Item 2)
Note: Excludes boats, RV, van, etc.
Next, additional analysis was needed to develop a PPH for each of the current residential tiers
used in the impact fee analysis. To complete this analysis, a review of national population
per housing unit data produced by the 2015 American Housing Survey (AHS) was conducted.
This analysis included developing a linear regression model that predicts the number of
people per housing unit based on the size of the home. Table A-3 presents the AHS national
PPH by household size, as well as, the square footage figures used in the linear regression
equation.
The AHS defines space as the square footage of a unit, excluding unfinished attics, carports,
attached garages, porches that are not protected from weather (such as screened porches),
and mobile home hitches. Both finished and unfinished basements are included. The
residential impact fees calculated as part of this technical study are developed using this
definition of space and should be assessed based on this measurement.
Housing Type Population(1)Housing
Units(2)
Population per
Housing Unit(3)
Single Family (attached/detached)23,230 9,939 2.34
Multi-Family 14,325 8,622 1.66
Mobile Home 1,006 509 1.98
Total 38,561 19,070 2.02
DRAFT
Tindale Oliver City of Bozeman
May 2018 A-5 Fire/EMS Impact Fee Update Study
Table A-3
American Housing Survey National PPH
1) Source: 2015 American Housing Survey (AHS). Represents the population in all homes
surveyed excluding boats, RV, van, etc.
2) Source: 2015 AHS. Represents all homes in surveyed excluding boats, RV, van, etc.
3) Population (Item 1) divided by homes (Item 2). These figures along with the square footage
estimate used in the regression (Item 4) are used in the development of the simple linear
regression of PPH.
4) Square footage figures shown are used in the development of the simple linear regression
of PPH
Figure A-1 presents the PPH trend based on the 2015 AHS figures previously shown in Table
A-3. Also presented is the estimated equation line used to develop the PPH estimates for the
City’s current residential tiers.
Residential Size
(Square Feet)Population(1)Homes(2)PPH(3)
Square Footage
Est. used in
Regression(4)
Less than 500 3,615 2,179 1.66 250
500 to 749 10,881 6,364 1.71 625
750 to 999 23,691 11,401 2.08 875
1,000 to 1,499 56,589 23,558 2.40 1,250
1,500 to 1,999 50,498 19,657 2.57 1,750
2,000 to 2,499 35,891 13,027 2.76 2,250
2,500 to 2,999 19,369 6,812 2.84 2,750
3,000 to 3,999 19,920 6,593 3.02 3,500
4,000 or more 9,520 3,024 3.15 5,500
Total/W. Avg.229,974 92,615 2.48 -
DRAFT
Tindale Oliver City of Bozeman
May 2018 A-6 Fire/EMS Impact Fee Update Study
Figure A-1
National PPH Trend
Source: Table A-3. Estimated equation developed by running a linear regression model on the national PPH and
associated square footage size of home.
The proceeding step in the analysis is to estimate the national PPH for each of the City of
Bozeman’s residential tiers. Table A-3 presents the square footage estimate used for each of
the residential tiers and its associated PPH estimate based on the linear equation presented
in Figure A-1. Next, the estimated PPH by tier was divided by the national PPH, 2.48.
Lastly, these ratios were then multiplied by the weighted PPH for the City of Bozeman, 2.02.
This analysis is presented in Table A-4, with the result being the estimated PPH for each of
the City of Bozeman’s residential tiers used in the impact fee study.
0.00
0.50
1.00
1.50
2.00
2.50
3.00
3.50
250 625 875 1,250 1,750 2,250 2,750 3,500 5,500Population per Housing UnitSize of Home (sf)
Estimated Equation:
Y = 1.848 + 0.296 X
X = 1,000 sf
Both X and Y variables are
significant at 1%
DRAFT
Tindale Oliver City of Bozeman
May 2018 A-7 Fire/EMS Impact Fee Update Study
Table A-4
Estimated PPH by Residential Tier
1) Source: Table A-3
2) Square footage used in the simple linear regression model to estimate PPH (Item 3)
3) Estimated based on the linear equation provided in Figure A-1, Y = 1.848 + 0.296 X where X = 1,000 sf
of space
4) PPH estimate (Item 3) divided by the 2015 AHS national PPH (Item 1)
5) City of Bozeman PPH (2.02) from Table A-2 multiplied by the PPH ratio of each tier's
estimate to the national average (Item 4)
Housing Development
Figure A-2 presents the City’s residential permitting activity since 1980 as reported by the
U.S. Census. As shown, the City’s development pattern has generally been split evenly
between single family and multi-family development. Furthermore, since 2012 the City has
experienced an average of 735 permitted units per year which is similar to the level
experienced during the housing boom of the mid-2000s. Figure A-2 exemplifies the need for
updated impact fees because as the City continues to grow, fire/EMS capital facilities and
equipment will continue to be stressed.
2015 AHS National PPH(1):2.48
Residential Size
(Square Feet)
Square Footage
Used to
Estimate PPH(2)
PPH Estimate(3)
Ratio (PPH
Estimate to
National PPH)(4)
Adjusted
Bozeman
PPH(5)
1,400 sf or less 1,400 2.26 91.13%1.84
1,401 to 1,600 sf 1,600 2.32 93.55%1.89
1,601 to 1,800 sf 1,800 2.38 95.97%1.94
1,801 to 2,000 sf 2,000 2.44 98.39%1.99
2,001 to 2,200 sf 2,200 2.50 100.81%2.04
2,201 to 2,400 sf 2,400 2.56 103.23%2.09
2,401 to 2,600 sf 2,600 2.62 105.65%2.13
2,601 to 2,800 sf 2,800 2.68 108.06%2.18
2,801 to 3,000 sf 3,000 2.74 110.48%2.23
3,001 sf or greater 3,600 2.91 117.34%2.37
DRAFT
Tindale Oliver City of Bozeman
May 2018 A-8 Fire/EMS Impact Fee Update Study
Figure A-2
Residential Permitting Activity
Source: U.S. Census, Residential Building Permits Survey
Job Growth
To analyze the City’s job pattern, data was obtained from the U.S. Census’ OnTheMap tool
which utilizes Longitudinal Employer-Household Dynamics (LEHD) data drawing from existing
Census figures and combines them with Bureau of Labor Statistics employment and wage
data. Figure A-3 presents a three-year rolling average job growth rate. As presented, like
many communities, the City experienced a dip during the economic recession of the mid-
2000s, but has since recovered to a three-year rolling average of 3 percent since 2011.
0
100
200
300
400
500
600
700
800
900
1,000
Single Family Units Multi-Family Units
DRAFT
Tindale Oliver City of Bozeman
May 2018 A-9 Fire/EMS Impact Fee Update Study
Figure A-3
Job Growth – Three Year Average
Source: U.S.Census Bureau, Center for Economic Studies, OnTheMap web application
In addition to the City job growth patterns, a review of Bozeman’s jobs by industry was
conducted for 2015 and is presented in Figure A-4. As of 2015, the City has a total job count
of 28,000 and as a percentage of total jobs, the services industry has the largest concentration
within the City (60 percent). Services includes jobs such as professional, scientific, and
technical services; management of companies and enterprises; educational services; and
health care and social assistance services among others. The second highest concentration
of jobs is within the retail trade industry, amounting to 16 percent of total jobs.
-4.0%
-2.0%
0.0%
2.0%
4.0%
6.0%
8.0%
10.0%
2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015
DRAFT
Tindale Oliver City of Bozeman
May 2018 A-10 Fire/EMS Impact Fee Update Study
Figure A-4
2015 Jobs by Industry
Source: U.S.Census Bureau, Center for Economic Studies, OnTheMap web application
Natural Resources
0%
Transportation,
Communication, Utilities
3%Construction
5%
Manufacturing
4%
Wholesale Trade
2%
Retail Trade
16%
Finance, Insurance, Real
Estate
5%Services
60%
Government Services
5%
Services Includes:
1)Professional, Scientific, and Technical Services
2)Management of Companies and Enterprises
3)Administration & Support, Waste Management and Remediation
4)Educational Services
5)Health Care and Social Assistance
6)Arts, Entertainment, and Recreation
7)Accommodation and Food Services
8)Other Services (excluding Public Administration)
City of Bozeman, Total 2015 Jobs: 27,976
DRAFT
Appendix B
Building and Land Value Analysis
Supplemental Information
DRAFT
Tindale Oliver City of Bozeman
May 2018 B-1 Fire/EMS Impact Fee Update Study
Appendix B
This appendix provides the additional data and information on building and land value
estimates.
Building Values
In determining the appropriate unit cost for building construction, the following analyses
were conducted:
A review of cost associated with a recent bid/estimate in the City of Belgrade for
construction for a fire station;
City of Bozeman fire/EMS station insurance values; and
A review of cost associated with recent construction costs in other jurisdictions; and
Discussions with Fire Department staff.
Most recent fire station in Bozeman was built in 2010. Given the time elapsed since then,
estimates/bids from nearby jurisdictions were researched. Based on the information
provided by the architects involved in the construction of a new fire station in Belgrade, the
estimated cost is $360 per square foot. This figure includes all site work, building
construction, and a 5-percent contingency, but does not include costs associated with
furniture/fixture/equipment and other soft costs, such as design, permit fees, etc. Tindale
Oliver confirmed with the City of Bozeman Fire Department that the characteristics of this
station is consistent with future stations in Bozeman.
The insurance value of Station 3 (built in 2010) is $290 per square foot. Insurance values tend
to be lower than full value since certain components of the building, such as foundation, as
well as costs related to architecture/design fees, site preparation, etc. are not part of the
insured value.
Tindale Oliver also reviewed cost information from several other jurisdictions to supplement
the local data. The costs reviewed were utilized in recent impact fee studies between 2014
and 2016 and ranged from $260 to $350 per square foot.
DRAFT
Tindale Oliver City of Bozeman
May 2018 B-2 Fire/EMS Impact Fee Update Study
Given this information, an average value of $350 per square foot was used for fire stations.
Table B-1 summarizes this information.
Table B-1
Building Value per Square Foot
1) Source: City of Bozeman
2) Source: Recent Impact Fee Studies
Land Values
In order to determine land value for future fire station land purchases, the following
data/information was evaluated:
Current land values of existing stations;
City of Bozeman recent purchases or appraisals, for all city purposes; and
Vacant land values as reported by the MTDOR for similarly sized parcels and location
as that of the current fire/EMS inventory.
The value of parcels where the existing stations are located, as reported by the MTDOR
averages $548,000 per acre with a range of $417,000 per acre to $922,000 per acre.
A review of recent land purchases and appraisals provided by City staff indicated that most
of the parcels purchased were large parcels (greater than 8 acres up to 85 acres). The only
smaller parcel (2.1 acres) was purchased for $163,000 per acre in 2014.
The current median land value as reported by the MTDOR amounted to $205,000 for all
vacant land of similar size to the current inventory.
Source Year Station
Building Cost
Recent Bid/Estimate(1)
New Station at Belgrade 2018 $360
Insurance Values of Existing Stations (1)
Station 3 (built in 2010)2017 $290
Other Jurisdictions(2)2014-2017 $260-$350
Estimate Used in Study $350
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Tindale Oliver City of Bozeman
May 2018 B-3 Fire/EMS Impact Fee Update Study
Based on this review, a conservative estimate of $200,000 per acre is used in the impact fee
analysis. Table B-2 presents this summary.
Table B-2
Land Value per Acre
1) Source: Montana Department of Revenue
2) Source: City of Bozeman. None of these parcels were purchased for a fire station.
These parcels are purchased for other City use.
3) Source: Montana Department of Revenue
Source Value per
Acre
Existing Land Value Estimates(1)
Weighted Average (by acreage) $548,000
Minimum $417,000
Maximum $922,000
Recent Purchases/Appraisals (All City Purposes)(2)
Weighted Average (by acreage) $31,500
Minimum $7,000
Maximum $163,000
Count 7
Range of Size (acres)2 to 85
Current Vacant Land Values (3)
Weighted Average (by acreage) $290,000
Median Value $205,000
Count 103
Range of Size (acres)0.5 to 2.0
Estimate Used in Study $200,000