HomeMy WebLinkAboutItem 8.3 VlyFireDeptConsolidation (2)
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CITY CLERK
File # DI?)l@[Q]-[1][QJ
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AGENDA STATEMENT
CITY COUNCIL MEETING DATE: July 23, 1996
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SUBJECT: Valley Fire Department Consolidation - Mayor's Committee Report
EXHIBITS ATTACHED: 1. Memorandum from the Valley City Managers Dated July 12,
1996
2. Tri-Valley Fire Management Cooperative Report to the Mayors,
Prepared June 6, 1996
3. Tri-Valley Fire Protection Cooperative Management
Consolidation Proposal
RECOMMENDATION: /\ ~uthorize the City Manager to continue with the efforts outlined in
(\[ff' ~Ie attached report and bring forward an interim exercise of the
Joint Powers Agreel11ent.
FINANCIAL STATEMENT: None at this time.
DESCRIPTION: Attached to this agenda statement is a report from the Mayor's
.:;':.' Committee and the City Managers from the cities of Livermore, Pleasanton and Dublin, which outlines
':' the work to date on the development of the government structure for the joint management of Valley fire
operations.
The essence of this report is focused on development of a Joint Powers Authority between the cities of
Dublin, Livermore and Pleasanton for the purposes of jointly managing Valley fire operations with a
. recommendation that the work continue toward the eventual full consolidation of all three city fire
services.
Presently, the City Manager is developing a report evaluating a number of fire service delivery options
for the City of Dublin which will include the JPA option. In order for the City to be in a position to actively
pursue the best option, it is necessary for the City to continue its efforts with the other two cities, even
though the City Council may later choose to select an option other than a JPA service delivery model.
It is Staff's recommendation that the Council authorize the City Manager to continue with the efforts
outlined in the attached report and bring forward an interim exercise of Joint Powers Agreement that will
conduct the final planning for the provision of consolidated fire services between the participating Valley
cities.
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DATE:
July 12, 1996
TO: Honorable Mayors and Members of the City Councils of Dublin, Pleasanton and
Livermore
SUBJECT: Valley Fire Department Consolidation - Mayor's Committee Report
SYNOPSIS:
In February the City Councils of Dublin, Livermore, Pleasanton and San Ramon received a joint
City Managers' report and adopted the recommendation to form a study committee comprised of
the Valley Mayors, City Managers and Fire Chiefs to continue the development of a governance
structure for the joint management of Valley Fire Operations. This work has been completed and
is contained in the attached report. The working group recommends the partner Councils form an
interim Exercise of Joint Powers Authority. This interim JPA will be charged with obtaining
agreement on detailed transition issues and cost allocation methods. If the partner agencies agree
with the recommendations of the interim JP A, it is envisioned the JP A could become operational
by 1997.
BACKGROUND:
The Mayors' working group discussed several governance options presented by staff for the
provision of joint fIre service management Mter analysis, it was determined that a Joint Exercise
of Powers Authority would provide the best political direction while controlling costs. It is
expected that the [mal operational JPA Board would set policy direction for Valley Fire Services,
while contracting most support services back to existing partner cities. In this format there would
not be a new expensive governmental entity in the Valley. It is also expected the final by-laws of
the operating JP A would clearly provide for the local customizing of fire services to each partner
agency - such items as Fire Code Adoptions or increasing a level of service would still be each
City Council's [mal decision.
It was further determined the best way to obtain closure on the remaining significant issues of
personnel matters and cost allocation formulas would be to have an interim JPA Board made up
of Valley Elected Officials to oversee the final planning efforts. In this way when the [mal JP A is
presented to the full partner City Councils for approval, there will already have been Elected
Official input
The interim JPA Board could consist of one Elected Official from each participating agency.
Simple operating rules would apply and the IP A would not own any assets or operate any
services. A Management Committee of the participating City Managers, with assistance from the
Fire Chiefs, would be charged with performing the actual transition planning and cost analysis.
In order for the JP A Board to set policy direction for the final planning effort, it is envisioned the
Board would meet at the beginning, middle and end of the transition planning process.
Since the Mayor's Committee completed it's work, the City of San Ramon has decided to have
San Ramon Valley Fire Protection District serve it's southern half, instead of the Dougherty Fire
Authority, which it shared with Dublin. This decision has three consequences for the JPA efforts.
First, San Ramon will not participate further with the IP A formation work. Second, Dublin will
have to select a new system for the provision of Fire Services. Third, the remaining employees of
the Dougherty Fire Authority will not have that JPA as an employer as of June 30, 1997.
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Valley Fire Consolidation Report
Page 2
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As a result of the San Ramon decision, the City Managers recommend expanding the scope of
the Interim JP A to also studying the full consolidation of the three Valley Q!.x Fire Departmen 15.
Functional, or management consolidation was the initial focus with the expectation that when
implemented, a natural second step would be the final merging of the three departments' work
forces. With an expanded JPA study, the full consolidation could occur sooner than originally
anticipated. The changes to Dublin and San Ramon make it timely to now study a fully
consolidated department between the cities of Dublin, Livermore and Pleasanton.
In order to keep all options open, the City of Dublin is also concurrently exploring a contract for
service option. The cities of Livermore and Pleasanton are jointly responding to this Dublin RFP.
If the joint city response is accepted by Dublin as it's best choice for fire service delivery, after , '
detailed negotiations, the final contract for service will be presented to the Councils for approval.
The actual interim Exercise of Joint Powers Agreement will be given to each participating City
Council for adoption within a month of approving this recommendation. It is currently being
drafted and undergoing legal review.
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IMPACT/COST/SOURCE OF FUNDS:
- There is no fiscal impact to continuing the study efforts other than the associated staff time of the
, Managers and Fire Chiefs.
RECOMMENDA TION:
The City Council should authorize the City Manager and Fire Chief to continue with the efforts
outlined in the attached report and bring forward an interim Exercise of Joint Powers Agreement
that will conduct the final planning for the provision of consolidated Fire Services between the
participating Valley Cities.
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Respectfully submitted,
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Lee Horner
City Manager
City of Livermore
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Deborah Acosta Richard Ambrose
City Manager City Manager
City of Pleasanton City of Dublin
Enclosures:
A. Tri-Valley Fire Management Cooperative - Report to the Mayors, Dated June 1996.
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Tri-ValIey Fire Management Cooperative
Report to the Mayors
Prepared June 6, 1996
After obtaining input from the Mayors at the first planning meeting in late March, the City
Managers and Fire Chiefs have continued to refine the possible governance options for joint Fire
Department Management in the Valley. The following report presents those options and a
phasing plan to start formal implementation of the project.
The purpose of this report is to further clarify the issues and solicit additional input and direction
to the City Managers and Fire Chiefs from the Mayors.
Recommendation
On the basis of the information contained in this report, the City Managers and Fire Chiefs
recommend the creation this summer of an interim Joint Exercise of Powers Agreement that will
be charged with obtaining agreement on detailed transition issues and cost allocation methods. It
is anticipated that the interim agreement would be in place before September 1996.
\Vhile the interim Joint Powers Agreement is in place, it is recommended that the City Managers
and Fire Chiefs be directed to prepare a detailed Joint Exercise of Powers Agreement which will
establish a Fire Management Program for the partner agencies. Additionally, this Joint Exercise
of Powers Agreement should allow for future consolidation of all fire protection services if
deemed appropriate at that time. The direction provided by the elected officials should establish
a goal of having the Joint Exercise of Powers Agreement for Fire Management Services drafted
and ready for approval before the end of January 1997.
Discussion
In 1993 the Fire Chiefs and the City Managers from the Cities of Dublin, Livermore, Pleasanton
and San Ramon began a series of meetings to ascertain whether there were opportunities to work
more closely \vith each other. The mission, at that time, was, and continues to be; "to find and
implement opportunities that by working together would either make fire operations more
efficient and/or create a savings." Through the efforts of all personnel, including management
and labor, many opportunities were implemented for the benefit of the group. Some of those
accomplisrunents are shown on pages 18 and 19 of the Tri- V allev Fire Protection Cooperative
Management Consolidation Proposal, which was prepared by the Fire Chiefs in December 1995
(attached).
It is the opinion of the Fire Chiefs and the City Managers that without further formal agreement,
most of the improvements that can be gained through cooperative efforts, have been achieved.
Based upon this opinion, the City Councils of the Cities of Dublin, Livermore, Pleasanton and
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San Ramon asked their Mayors to work with the City Managers and Fire Chiefs to further
explore the consolidation of the Fire Departments, Management, and governance options. Based
upon our work to date, it is our belief that our mission should now be to "establish an interim
agreement to authorize the necessary work to prepare a Joint Exercise of Powers Agreement
for the Management of Fire Protection Services."
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The appropriate Joint Exercise of Powers Agreement, which when adopted in the first quarter of
1997, will define the mission as: "to establish a Management and Overhead service program
for fire service agencies agreeing to participate. "
To the extent that the cities are successful consolidating Fire Department Management and
Overhead, future consolidation or some modification to the cooperative's mission would
consolidate "Fire Protection and Emergency Medical Services to the Cities of Dublin,
Livermore, Pleasanton and San Ramon, contract areas, in cooperation with neighboring fire
protection and Emergency Medical service providers." The interim Joint Exercise of Powers
Agreement should provide for expansion to this mission in the future when deemed appropriate.
Ideas for Working- Together
During our initial meeting, several possible approaches were discussed regarding the formation
of an agreement. Several of the ideas discussed were set aside as not being achievable and it was
determined that others required further review. The following is a summary of the ideas, based e." ,:
upon our review:
Considered Most Achievable:
· Form a Joint Powers Authority and have various cities provide certain services
such as personnel and finance.
Considered Somewhat Achievable:
· Form a Joint Powers Authority and contract with one city to provide all services
including Fire Protection.
. Contract Services to one Agency. Each city contracts independently with one city
as the provider.
In addition to the options above, the following options were discussed with the Mayors and
deemed to be Not Achievable:
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Form an Independent Fire District - this option was not considered further because
it would remove Fire Protection Services from the control of the cities and require
the formation ofa new governmental body, including redistribution of property
taxes to the new district.
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All cities con~..ct \\ith Alameda County Fire Protection District - This option was
not considered further because some parties felt that forging better ties amongst
the Valley cities would go further to maintain individual cost control while
receiving the b::nefits of consolidation. Additionally, the county is potentially so
large that the b::nefits of consolidation can be lost. It was also concluded that this
new Valley CO'Jperative should strive to work closely with the County Fire
Department.
· Contract services to one agency and utilize a Fire Commission for decision
making - this o;>tion was not considered further because it effectively delegated all
control of Fire Protection Services to one of the cities. It was also noted that
while Commissions serve individual cities well in a multi-jurisdictional
organization, i: would not be as responsive as a JP A governed by elected officials.
Since all of the potential cooperative models considered "Achievable" use some form of a Joint
Exercise ofPO\vers Agreement, the remainder of this report will focus on the issues related to
forming a Joint Exercise of Powers Agreement. The determination of which options were most
or least desirable was based Lrpon the issues which were raised by each of the participants.
Following is a sUl'nmary of the issues raised:
Establish a Joint Exercise of Powers Agreement and have various cities provide certain
services, such as personnel and finance,
Issues:
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Legal commitment to joint decision making by Elected Officials.
Recommended the governing body consist of elected officials
Makes it almost impossible for one agency to affect another.
Level of Senice could be different in each partner City.
Each partner City could adopt and enforce its unique Fire Code.
Valley Fire Unions have indicated willingness to work towards this goal.
Slower process for policy direction.
Slow response for day-to-day approvals like purchase approvals.
Another meeting for the elected officials.
A new layer of government for the Valley -- in contrast to where the State
Constitution Revision process is headed.
Cost shifting - a new legal entity would have to contract for or provide support
services for litigation, risk management, insurance, etc.
No clear "chain of command" authority for the City Managers - The three to four
Managers would probably rotate the position which would be difficult for Fire
Chief and department to cope with.
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Establish a Joint Exercise of Powers Agreement and have one City provide all services
including Fire Protection.
Issues:
· All the political control benefits of the JP A model described above without the
JP A incurring completely separate service and overhead costs.
· The M.O.D. would spell out policy and fiscal responsibilities for JP A Board to
manage.
· Department would operate day-to-day under one City Manager.
· Fire Chief would work with one set of support services for litigation, personnel
and fmance.
· Quicker decision-making for day-to-day events that are within the budget and
work plan. Lead Agency Council could approve routine budget purchases and
personnel matters, as spelled out in the terms of the JP A.
· Slight additional overhead costs for lead agency.
Contract Services to one Agency.
Issues:
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One "chain of command" from Elected Officials to City Manager's to Fire Chief.
One City Manager with oversight responsibility and accountability.
One integrated group of support service departments for litigation, personnel, and
finance.
Faster decision-making and reaction times to new and/or changing events.
No creation of any new Valley governmental entities -- faster start-up, least
expensIve.
Potential lack of trust between Elected Officials - could an unwilling lead City
Council ignore the other agencies and try to use fire issues to affect other issues in
those cities?
Elected officials and employees not in the Lead Agency would feel "swallowed
up" and resultant loss of identity and control would undermine the effort.
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Benefits of Establishing a Joint Exercise of Powers Agreement
As described earlier, the mission of the interim Joint Exercise of Powers Agreement would be to
formally consolidate Fire Department Management and Overhead services in the Valley. The
benefits of this consolidated effort would be:
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Reduced costs. while maintaining Vallev political control. In any consolidation there will
be cost savings, which must be balanced against a loss of control. A huge agency gets
expensive with overhead and is under little local control. The trend in government is
right-sized sub regional agencies close to the people. A Valley Fire Agency could
provide cost reductions while maintaining a close, responsive relationship to the needs of
the cities in the Valley.
A leaner management staff over time (12 to 24 mos.) Paying the right amount for the jobs
performed, for example use of civilians, contract employees or fire mid-managers, at
lower salaries than the senior executive level, as all of them are today.
Reduction to one Fire Chief and command staff. In addition to budget savings there
would be one set of Valley wide operating policies and departmental operations. This
would lead to cost containment's and greater efficiencies when working together at
emergenCIes.
Full time specialists in support functions. Today in separate agencies, the mid-managers
must be generalists and do several important functions on a part-time basis. With one
agency, areas like training, fire prevention, medical services, equipment and building
management, master planning, disaster preparedness and fire operations management
would have dedicated personnel working full time to make each area the best possible.
One emergency incident management team. The individual agencies would not have to
have as many Duty Chiefs as we currently do on a daily basis, but when an emergency
occurred they would respond quicker and work better together as a team due to
standardized policies and training.
If in later years a full consolidation of all fire agencies occurred the following benefits could be
realized:
One Fire Prevention Bureau. While individual cities could still have unique policies
administered, a business friendly development climate could be spread uniformly among
all the partner agencies.
Joint Fire Station Siting. Over time as growth occurs in the Valley, stations would be
sited to serve everyone in the most cost effective manner possible.
Shared infrastructure costs. For support programs like training and fleet maintenance.
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Elements of a Joint Exercise of Powers Agreement
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The City Managers and Fire Chiefs recommend a two-step approach to the formation of a Joint
Exercise of Powers Agreement for the management of Valley Fire Services. First, the partner
agencies should, by the end of August, establish an interim or "skeletal" Joint Exercise of Powers
Agreement that will only be charged with transition planning over a six month period. Second, if
the JP A Board and partner cities then accept the transition plans, the JP A can be expanded and
redefined to provide management services of Valley fire operations by February 1997.
The advantage to this two-step approach is to allow partner agencies to formally commit to work
together for joint service delivery and detailed planning, while still having the option before
implementation of those plans to choose to not continue with the JP A solution. Also, a skeletal
JP A has little if any cost, as compared to immediately placing assets into a JP A to provide
management services, while finishing transition plans.
Interim Joint Exercise of Powers Agreement Elements
For the transition planning step, the JP A Board could consist of one Elected Official from each
participating agency. The JP A would be established according to the California Government
Code Title 1, Division 7, Chapter 5, Joint Exercise of Powers. Simple majority voting rules and
Robert's Rules of Order would apply. The JP A would not own any assets or operate any
services. A Management Committee of the participating City Managers, with assistance from
the Fire Chiefs, would be charged with performing the actual transition planning and cost
allocation analysis.
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It is envisioned that the initial JP A Board would meet to set policy direction for the planning
effort and to provide a forum to test the planning results before going to each full City Council.
The Board would meet at the beginning, middle and end of the transition planning process to
provide this oversight.
During this initial Agreement period the Scope of the JP A transition and operating planning
effort will be in these areas:
. Administration
. Finance
. Operations
. Personnel
. Facilities
. Equipment
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Operating plan for initial Joint Exercise of Powers Agreement
The make-up of the Management Committee and frequency of meetings would be finalized
during transition planning. It is expected that the Management Committee will meet periodically
to set policy direction and provide budgetary recommendations back to the partner cities as
provided for in the Government Code. The JP A by-laws would be amended to provide for these
issues, as well as, the ability to own assets and operate services. The future make up of the
governing body, as well as the roles of the City Managers and Fire Management Team will be
established during this period and approved along with the final version of the Joint Exercise of
Powers Agreement in February 1997.
Phasing Plan
The following phasing plan is designed to implement Option IV of the Management
Consolidation proposal prepared by the Fire Chiefs in December 1995 as shown on page 15 of
the attachment.
Current Situation (Figure A)
In the Current Situation the Fire Chiefs work closely with the City Managers to develop the
necessary contracts and procedural documents that allow for the implementation of the interim
Joint Exercise of Powers Agreement. Additionally, the Fire Chiefs will continue to work with
their organizations to develop support and understanding.
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Firr Cbirrs
Commiltrr
from c~ch city
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.. ... .....J.. ......... ... .......J. ..uu.... I I I
Firr Prrnntion Division Admin. Srn'icrs Dh'ision Support Sen'ires Division Operations Division Trainin:: Division
Fire Marsh~lI Division Chcif Division Chief Division Chief Di,'ision Chief
Division Chief
..uuu.. J... .... .... _...1.... A Shift EMS Training
DRFA Data Sen'icrs Supplirs
Prevention Staff MIS Coordinator SVC5, Worker Battalion Fire
Chief Captain
B Shift ~'irr Operations Training
Livermore Battalion Fire
Prevention Staff Chief Captain
C Shift Specialist Training
Battalion Fire
Pleasanton Chief Captain
Prevention Staff
Legend:
p..............--...
Cooperative: . .
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Civilian Positions ...-.._--_.._~
Safety Positions I I
Local Agency I II
Discretionary Positions I
Figure A
Transition Planning
Phase I (Figure B)
In Phase I each Fire Chief is assigned a specific set of responsibilities within the cooperative
while retaining Fire Chief status within their current organization. Each Fire Chief would remain
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an employee of their current organization and perform all liaison services to their current
organization.
For the cooperative the Fire Chief designated as Cooperative Coordinator will work with the City
Managers to craft the constitution of the new organization as well as select the ancillary service
providers. This Fire Chief will work in cooperation with the support services and operations and
Training Coordinators. Additionally, this Fire Chief will work with human resources and legal
counsel to develop position descriptions, personnel policies, compensation policies and rules and
regulations for the cooperative.
The Fire Chief designated as Support Services Coordinator will work with the Operations and
Training Coordinator and the Cooperative Coordinator to develop transition plans for
management employees migrating to the cooperative. Additionally, this chiefwill work within
the Support Services area to develop the necessary operating procedures for the related service
areas in the cooperative. This Chief will also be responsible for preparing a records management
plan to ensure that adequate records are maintained by the cooperative.
The Fire Chief, designated as Operations and Training Coordinator, will work with the Support
Services Coordinator and the Cooperative Coordinator to develop transition plans for
management employees migrating to the cooperative. Additionally, this Chiefwill work within
the support services area to develop necessary operating procedures for the related service areas
in the cooperative. This Chief will also be responsible for preparing emergency management
plans which will provide for continuity of service in each city during disasters.
Together the three Fire Chiefs will prepare a needs assessment and transition plan, for the
administrative and clerical support staff necessary to support the Management Team. The Fire
Chiefs are prepared to make joint and/or individual recommendations regarding the assignment
of personnel to the positions identified in Phase 1.
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Governing Body ,
I Elected Official
from each city
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Cif)' Manager
Jllanagemnt Committee
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Support Svcs. Cooperative Operations &
Coordinator Coordinator Training
-- --- Coordinator
Liaison and Liaison and ---
Fire Chief to Fire Chief to Liaison and
Current City Current City Fire Chieflo
Current City
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_ __ _ __ ___. J__ _ _ __ _____ I I
nii~~ -Di;i~i;~ Admin. Services Division Support Sen'ices Division Operations Division Training Division
arshaJI Division Cheif Division Chief Division Chief Division Chief
ion Chief
___. ______ 1._ ...._ U.. __001000_ EMS Training
RFA Data Services Supplies A Shift
ntion Staff MIS Coordinator Svcs, Wor'.::er Battalion Fire
Chief Captain
B Shift Fire Operations Training
ermore Battalion Fire
ntion Staff Chief Captain
C Shift Specialist Training
Battalion Fire
asanton Chief Captain
Olion Staff
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Fire Preve
FireM
Divis
Liv
Preve
PIe
Preve
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Legend:
Cooperative:
Civilian Positions
Safety Positions
p--"--"--"'-,
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LOc:l1 Agency I
Discretionary Positions I
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Figure B
Phase II (Figure C)
In this phase the cooperative has been formed and the designated Fire Chief has migrated to the
cooperative. At this time, the Fire Chiefs role becomes one of guiding the management and
administrative support staff through the transitions.
Due to the shift of accountability for the Fire Chief, the duties of Liaison to that Chiefs original
city will be shifted to one of the incoming Division Chiefs. The chart illustrates that the role
goes to the Support Services Division Chief but the assignment would actually be based upon
suitability. Because of the nature of the assignment, Liaison Chief roles would be limited to the
Division Chief level.
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All incumbent staff will be assigned a role within the cooperative based upon their individual
transition plan.
Govrrning Body
composition to be
detennined
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City 1\1 a nager
Management Committee
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Cooperative
Fire Chief
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SupportSvcs. Opera tions &
Coordin:l!or Training
- Coordinator
Liaison and ._-
Fire Chief to Liaison and
Current City Fire Chief to
Current City
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J.... __ __... ...__.....1........... . 1 I I
ntion Division Admin. Services Division: Support Services Division Operations Division Training Division
arshall Division Cheif . Division Chief Division Chief Division Chief
on Chief .
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..........J.........__ . ....I.... .
RFA Data Services . Supplies : A Shift EMS Training
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ntion Staff MIS Coordinator . Svcs, Worker: Battalion Fire
.
. . Chief Captain
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B Shift Fire Operations Training
ermore Battalion .' Fire
tion Staff Chief Captain
C Shift Specialist Training
Battalion .... Fire
anton Chief Captain
tion Staff
'fi~~ 'p;~;;
Fire M
Divisi
D
Preve
Liv
Preven
Plea3
Preven
Legend:
Cooperative:
Civilian Positions ... "'"'' ~
Safet)' Positions I
LOc:l1 Aeenev
Discretio~ Positions I'
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Figure C
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Phase ITI (Figure D)
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In this phase, based upon their individual transition plan, one of the two Fire Chiefs not selected
as Cooperative Fire Chief, has left his organization. The remaining Fire Chief becomes the
Assistant Fire Chief of the Cooperative.
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The Fire Chief serving as Assistant Fire Chief has not yet transitioned to the cooperative and as
such remains Fire Chief and Liaison to his current city. The duties of Liaison has passed from
the departing Fire Chief to one of the Cooperative Division Chiefs.
Governing Bod)'
composition to be
determined
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Cif)' Manager
Management Committee
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Cooperative
Fire Chief
I
Assistant
Fire Chief
-
Liaison and
Fire Chief to
Current City
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1......._.. .... ...... J._.... _.... I I I
tion Division Admin. Sen'ices Division Support Services Dh'ision Operations Division Training Dil'ision
arshall Division Cheif Liaison to City Division Chief Liaison to City
on Chief Division Chief Division Chief
... ....... 1.........._ ...J..... A Shift -, EMS Training
RFA Data Services Supplies
MIS Coordinator S ves, Worker Battalion -l Fire
tion Staff Chief Captain
B Shift Fire Operations Training
oermore Battalion Fire
tion Staff Chief Captain
C Shift Specialist Training
Battalion Fire
anIon Chief Captain
ntion Staff
Fire Preven
Fire M
Divisi
D
Preven
Lh
Preven
Pleas
Preve
Legend:
Cooper:>tive:
Civilian Positions
s..fet)' Positions
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Loc:1I Agency
Discretionary Positions I'
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Figure D
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Phase IV (Figure E)
In this phase, based upon his individual transition plan, the remaining Fire Chief has left his
organization and a Cooperative Assistant Fire Chief has been appointed. The remaining Liaison
duties have been shifted to a Division Chief.
GO\'trning Body
composition to b.
determined
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Cit), ~lanager
T\-lanagement Committ~t
I
Cooperatin
Fire Chi.f
I
Cooptrath'.
Assistant
Fire Chief
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J.__________ ....... _..J.. ._... _ ... J I I
ntion Division Admin_ Sen-jets Division Support S.n'ic.s Division Operations Division Training Division
=hall Division Cheif Liaison to City Liaison to City Liaison to City
on Chief Division Chief Division Chief Division Chief
.... ..... J...... ..... .....L.... AShi!t EMS Training
Data S.!'ictS Supplie.
RFA MIS Coordinator S ves, Worker Banalion Fire
tion Staff Chief Captain
B Shift Fire Operations Training
Banal ion Fire
'ennore: Captain
tion Staff Chief
CShift Specialist Training
B.tt:llion ...., Fire
aS3nton Chief Captain
Olion Staff
..........---....
Fire Pn:ve
FireM
Divis;
D
Preven
Lh
Preven
Pie
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Legend:
p- ...--............
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i...._............j
Cooper-llive:
Ci\'ilian Positions
$:lfet}' Positions
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LOe:l1 Agency
Discretionary Positions I'
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II
Figure E
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Phase V (Figure F)
Recognizing that for the remainder of the cooperative management and administrative staff there
will be a comparative number of transition steps, Phase V envisions a complete conversion to
the cooperative. The actual number of steps will be determined during transition planning.
Governing Body
composition to be
determined
I
Of)' Manager I
Management Committee
I
Cooperative
Fire Chief
I
Cooperative
Assistant
Fire Chief
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.... _.. ... L.... _..... ......... _ J.........._ I I I
Fire Pre\'tntion Division Admin, Sen'ices Division Support Sen'ices Dh'ision Operations Dh.ision Training Division
Cooperative Cooperative Cooperative Cooperative Cooperative
F ire Marshall Division Cheif Liaison to City Liaison to City Liaison to City
Division Chief Division Chief Division Chief Di\'ision Chief
. ......... J. - ......... .....L.. .. E;\IS Training
DRFA Data Sen.ices Supplies A Shift
Prevention Staff Cooperative Cooperative Cooperative Cooperative
MIS Coordinator Svcs, Worker Banalion Fire
Chief Captain
Livermore B Shift Fire Operations Training
Prevention Staff Cooperative Cooperative
Banalion Fire
Chief Captain
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Pleasanton C Shift Specialist Training
Prevention Staff Cooperative Cooperative
Banalion Fire
Chief Captain
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Legend: .
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Cooper-llive:
Civilian Posilions
Safety Posilions I I
Local Agency
Discretional)' Positions II II
Figure F
Conclusion
It is recommended that the City Councils of Dublin, Livermore, Pleasanton and San Ramon
endorse and Authorize the development ofa Joint Exercise of Powers Agreement for Fire
Protection and Emergency Medical Services.
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Time LIne
DI~.ry. CM IlI1llg1'Hlll8flt 1M rucMd1
Interim Jolnt POMl'S AgrHment
FInal Jolnt POMl'S AgrMmMlt Ow..opment
FINI Jolnt POMl'S AgrHment Appronl
Currwnt 8Itu8tIon
Ph... I
Ph_n
PhH. nl
Ph... IV
Ph... V (OptIon IV Fully Il11lkImen\8d)
CompIlItie Consolldllllon of Fh o.p.rtments
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Oct 96 Nov 96 D.c 96 JIUl 87 F.b 87 Mar fl1
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tllOl
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~--------------------
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Futunl Event
TRI- VALLEY
FIRE PROTECTION
COOPERATIVE
MANAGEMENT CONSOLIDATION PROPOSAL
SERVING
DUBLIN & SAN RAMON
"
Dougherty
Regional Fire Authority
Prepared
December 18,1995 by:
Revised
Karl D. Diekman
11
City of Livermore
Fire Department
Stewart Gary
City of Pleasanton
Fire Department
George Withers
F 'i..' 'l'; P ~ '!"I;. 1:., "?'
t ", ~ .i' "J! '-I
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Table of Contents
Executive Summary 1
History of Fire Service Studies in the Valley 5
Current Situation 6
Organizational Charts - Current 10
Organizational Charts - Proposed 11
Financial Impact 17
Accomplishments to Date 18
Issues to Resolve 19
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Executive SUlnmary
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As directed by the City Managers last spring, the staff officers of the Dougherty Regional Fire
Authority, the City of Livermore Fire Department, and the City of Pleasant on Fire Department have
been studying functional consolidation. This executive summary outlines the efforts that have been
made to date. Based upon this summary, three years and four study efforts, the Fire Chiefs endorse
formal consolidation of management services as opposed to continued close cooperation. Utilizing
a two to four year period to achieve this goal, the consolidation of all management areas will lead
to one command team and one Fire Chief.
The consolidated Valley based management team will be the right size to achieve economies of
scale, while being the most responsive to the needs of the Valley communities. Areas currently
experiencing growth in the Valley (North Livermore, San Francisco water project, East Dublin and
the Dougherty Valley) can be best served by a consolidated Valley Fire Agency. Cooperation with
other fire agencies in the Valley will continue and fragmented County areas can be served by the
County or by contracts with the consolidated agency.
BACKGROUND:
In 1992 the Bums Study recommended to the Alameda County Board of Supervisors the
consolidation of two Fire Districts, the County Fire Patrol and the O.E.S. Volunteers. In addition,
the study recommended that County areas near Pleasanton and Livermore contract with those cities
respectively for the sub-regional consolidation of services. As a result, the Board of Supervisors
created the Alameda County Fire Department which continues to provide service in the Valley
rather than utilize expanded contracts with the cities. At this time the County has established a goal
to create one county wide Fire Department in place of increased sub-regional consolidation.
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The Valley Fire Agencies have a history of close cooperation, especially in the areas of training and
mutual aid. This strong commonalty of interest which has existed between the Fire Agencies and the
Cities in the Valley pre-dates, and is more successful than many others in the region.
Based on their common interests, the Valley Fire Agencies studied possible functional consolidation
opportunities from February 1993 until December 1994. Early discussions were productive,
however, the City of Livermore replaced their Fire Chief during this period and discussions were
stalled. After Livermore's Fire Chiefwas hired, the Davis Company was corrimissioned to formally
study Valley Fire consolidation opportunities in February of 1994. The subjects of the Davis
Company's Study included the three municipal Valley Fire Agencies and the new Alameda County
Fire Department.
In early 1995 the Davis Study was completed, indicating that sub-regional efforts in the Valley
would not only result in the equal or improved provision of fIre protection services, but a more cost
effective and efficient provision of services in general. The Davis Study recommended the following
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four areas to be the best suited for initial service consolidation: Fire Prevention, Training, Shift
Supervision and Dispatching.
After several meetings, the four Cities agreed to perform detailed studies in the four areas, described
by the Davis Study. The analysis, performed by the municipal agencies, was expanded to include
all current mid-managers and the following functional areas:
· Fire Prevention
· Training - Operational Mandates
· Training - Officer Professional Development
· Shift Operations
· Facilities and Equipment
· Emergency Preparedness - for the Fire Agencies
· Community Education
· Communications
Individual mid-managers expressed interest in the different functional areas and were assigned to
develop a plan for a specific area. These plans were to include an operational design, a possible
implementation schedule and a budget. Bi-monthly staff meetings were held with the mid managers
and the Fire Chiefs. In addition, the Chiefs worked on an as needed basis with each specialty area
to facilitate plan development.
. This effort produced the single best impact to date --the mid-managers by their own accord began
to see themselves as a "team" and work towards common goals. While for the mid-managers issues
remain resistance on professional issues no longer exists. Based on the progress made to date, it has
become obvious that by sharing resources and personal talents the services offered to both the line
personnel and the citizens will only improve.
The plans developed by the mid-managers illustrate that it is possible to functionally consolidate
each study area As consolidations occur, right-sizing and economies of scale would develop
resulting in the same or similar programs being offered in each jurisdiction. The three cities would
continue to customize the programs or philosophies to meet their local needs within the broader
scope of the Valley.
POLlCY DISCUSSION:
The principal factor driving consolidation is fiscal savings which often leads to the right-sizing of
the organization. Right-sizing often equates to reduced staffmg, closed or re-Iocated fire companies,
dispatch mergers Vvi.th resultant lay-offs and purchasing economies of scale. In the Valley some or
all of these opportunities are possible, however, due to the following three reasons these
opportunities are minimized for the Valley agencies.
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· During the recession the three agencies, through attrition, no longer maintain some mid- ... . ','
management positions. While one or two other mid-management savings are possible in two
to four years, the savings are not huge compared to what has already occurred. Savings in
this area would increase with a move over time to one Fire Chief.
· The three agencies today do not share closely joined or intertwined fire company service
areas. There are natural buffers that will continue to separate the cities for some time, such
as the gravel mining areas on the south and narrow Collier Canyon on the North. As a result,
savings through fire company staffing 'will not occur in this decade. Each jurisdiction will
be forced to serve new fringe growth areas with current initial due units. During this period
any savings due to staffing would come from assembling a multi-unit force on major
emergencies utilizing the strength of the consolidated agencies.
· The third less tangible issue is local control, especially in program areas outside fire
company services, such as prevention, disaster preparedness, community education,
purchasing and dispatching. Local policy control is especially important in determining
prevention and community development policies, response and staffing levels, and personnel
practices.
The question that needs to be answered by the Valley Agencies is why even begin formal
consolidation at any level? The Fire Chiefs propose that by beginning the consolidation process
today, the three agencies can best achieve economies of scale over the long term. As the agencies .':
continue to grow and develop independent programs and personalities, the harder it will be to
consolidate at any service area in the future. The opportunity exists now, and is even more
advantageous, as several mid-managers will retire in the near future. The Chiefs believe that a
Valley Fire Agency, at least managed by a common team., can best deliver services with local Valley
control, at a right-sized price. The reason to start now is long term economics and being able to
utilize shared fire companies across jurisdictional lines as the cities grow together.-
Any consolidation effort takes time. If the agencies start with functional issues for management
services, the time necessary to negotiate differences and implement common policies will be
available and well utilized. The alternative, a forced consolidation at a later time, woUld result in a
haphazard management approach as issues must be satisfied when operational needs must be met.
Two critical issues must be addressed: l) how do we get there from here; and 2) how do we obtain
consistent direction given that many objectives would remain, in some cases unfulfilled, within the
terms of office of the Fire Chiefs, City Managers, and Elected Officials. The Chiefs recommend
commitment to a process that will put a joint management structure into place as attrition and other
opportunities occur. In this way, the agencies can work to achieve their goal while simultaneously
achieving near-term goals, such as consolidated training programs, or equipment standardization.
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Commitment to the final structure is important. Every level of staffing should be able to identify
when goals, both short and long term, are completed in order to ease the transitional development
pains. Initially, as the consolidated organization develops, management by committee will be
necessary, however, it is not efficient, nor in the best interest of the organization, to have more than
one set ofphiIosophies at the top for an extended period of time.
It will also be necessary to decide how to supervise the joint management team. Traditional
approaches include Joint Powers Authorities or contracts for service to one lead agency. Both
methods have their pro's and con's and the [mal method will have to come from political
negotiations between the agencies. In either event, all members should insist on performance based
agreements that clearly spell out the joint agency's mission, service levels, political accountability
and options for local differences.
OPTIONS:
1. Do nothing further, probably for the balance of this decade. See what growth patterns,
economic and political changes occur in the Valley. Perhaps in the future a more compelling
economic argument will surface for functional consolidation.
2.
Do not pursue formal consolidation in 1996, but insist on close joint operations between the
agencies, This would include a continuation of the monthly staff meetings and driving for
the standardization of operations wherever possible. Small economies of scale through
contracting would be encouraged in areas such as facilities, equipment, data systems and
training programs.
3. Formally approve the goal offull, permanent, consolidation at the mid-management level.
In early 1996 obtain the City Council's support and input on a management structure. One
suggestion would be to appoint a steering committee to design the permanent structure. This
committee could be composed of one elected official from each agency, the Fire Chiefs and
the City Managers. During this negotiation phase in early 1996 relevant items from option
#2 would continue to be pursued. The transition and final structure could be ready for
implementation by the third quarter of 1996. This would allow the joint team to make the
best use of whatever retirements occur from that point forward.
4. Formally approve the goal of full, permanent, consolidation of all fire management
services as discussed in option #3. In this particular instance the plan would move more
quickly to a single Fire Chief allowing the cooperative effort to stabilize more quickly than
in option #3.
5. Formally approve a complete consolidation of all fire service activity areas. This option
would receive all of the benefits of Options #3 and #4 but may be more complicated by labor
group interests.
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COST/SOURCE OF FUNDS:
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To date working together has been beneficial and has not posed a financial burden on any of the
three agencies. As consolidation efforts increase and programs become more integrated, a funding
formula must be developed and all accounts must be reconciled at the conclusion of each budget
year. Both options #3 and #4 offer savings to the group. Each agency will benefit in varying
amounts based upon thier current and future situations. For details, please see page l7.
RECOMMENDA nON:
The Fire Chiefs recommend that the three cities pursue option #4 (utilizing option #3 as an interim
step) full, permanent, consolidation of all fire management services. It is our intent that no employee
be forced from existing positions which is the reason phasing is recommended. This will provide
the agencies with the most efficient and effective delivery of emergency services dedicated to, and
controlled by, Valley based elected officials and their constituents.
The other options will give increased regionalization to some support services, but would not take
advantage of retirements or attrition at the mid-management level, the fire chief level or other
support positions. We have come to the conclusion that functional consolidation cannot be partially
completed. Either we continue close cooperation, but operate independent departments, or bite the
bullet and take on meaningful functional consolidation.
History of Fire Service Studies in the Valley
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Fire Service in the Valley is rich in history and tradition dating back to the 1800's. Historically,
discussion of the consolidation of the fire departments in the Valley date back to 1972. The City of
Livermore Fire Department, City of Pleasanton Fire Department and the Valley Community
Services District (VCSD-now the Dougherty Regional Fire Authority) discussed the possibility of
consolidating the three agencies. Consolidation at that time appeared to be a more economical and
: efficient means of providing service to the residents of the Valley. The City Managers of Livermore
and Pleasanton as well as the General Manager of VCSD met with the three fire chiefs and
determined that a feasibility study on consolidation should be done.
In 1972, the administrative staffs of the three agencies applied to the State Advisory Commission
of Personnel Administration for a grant to hire a consultant to study fire department manpower
utilization and possible consolidation. And in February of 1973 the City Manager of the City of
Livermore discussed the matter of consolidation with the City Council.
In March or April of 1973, a consolidation feasibility study was conducted by Booz, Allen and
Associates. The scope of the study included the possible consolidation of communications, training,
and administration. In addition, Booz, Allen, and Associates were to investigate alternative staffing
methods including 14 hours on and 10 hours off and an 8 hour work shift for firefighters. The study
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provided information which served as the basis for answering critical questions about the manpower
needs and utilization, work productivity and work schedules of a consolidated Valley department.
In February 1993 the City Managers of Dublin, Livermore, Pleasanton, and San Ramon met with
their Fire Chiefs to discuss the issues surrounding consolidation. After more than a year of
discussion, the four cities, along with Alameda County, retained the Davis Company to evaluate
Joint Fire Service delivery options. Since the completion and acceptance of the Davis report in early
1995, the Fire Chiefs along with their staffs have been meeting to consider possible methods by
which to work more closely together.
In 1995/96 the three agencies, the Dougherty Regional Fire Authority, City of Livermore Fire
Department, and the City of Pleasanton Fire Department, find themselves dealing with the same
issues that were being dealt with in 1973 when the Booz, Allen and Associates report was
completed.
In order to conduct this current review, the Fire Chiefs and their staffs organized themselves in the
manner illustrated below:
/ CHIEFS I
COMMTlTEE
,
I I I I I I I I
Fire Prevention Tmining Trail!, Officer OperaJions Facility '" Emtrgtncy Communirv Com1nuniCtltionr
Officer Offiar Profesnanol Officer Equipmtnt PrepamintsS wealia:, OffiCtr
Cm/san OperaJianal lkvelopmtnt Laurence Officer Officer Officer Halvo"'tn
H~k:h Branch Mill" Will Ow",.
I
ASJzijl BSJrijl
Officer Officer
Mc/(Qsl:zy lJ<mtktvti
C Shifl - ,~
Officer
Flllwaod
Current Situation
DOUGHERTY:
The Dougherty Regional Fire Authority (DRF A) provides services in all study areas via Authority
staff and contracts for service. Three Battalion Chiefs working a modified 40 hour work week
manage Authority programs for training, operations and Fire Prevention. In addition to staff
assignments, t.~e Cpjef Officers provide Duty Chief coverage on an assigned shift. DRF A has also
assigned a 40 hour per week Fire Captain as the Emergency Medical Services Coordinator. Vehicle
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maintenance and dispatch services are provided via contracts with the City of Livermore and
Alameda County respectively.
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In recent years, DRF A has eliminated one Assistant Fire Chief position and has future plans to add
one Division Chief and one Fire Captain/Training Officer. In addition to the safety staff, DRF A
currently has a non-sworn staff consisting of one Administrative Secretary, one part-time Clerical
Assistant, and one Administrative Assistant to the Fire Chief.
DRF A provides fIre suppression, emergency medical responses and other emergency services to a
suburban population of approximately 45,000 residents in the Cities of Dublin and San Ramon. The
Cities are located in Alameda (Dublin) and Contra Costa (San Ramon) Counties. Due to their close
proximity to the east side of the San Francisco Bay, the Cities are currently experiencing a rapid
growth rate and an influx of highly mobile residents. The geography of the area has resulted in the
residential development of the surrounding hillside. This creates a wildland/urban interface area
with the potential for major fire problems. Both cities have a mix of office commercial, light
industrial and multi-family occupancies. In addition, two major freeways are within the Dougherty
Regional Fire Authority's response area. The volume of traffic on Interstate 580 and Interstate 680
has drastically increased the potential for hazardous materials incidents and major traffic accidents.
In 1994 Dougherty responded to 1,754 incidents and expects to respond to approximately 2,000
incidents in 1995. The classification of incidents is typical for this area and is distributed as follows:
51 % of the incidents are medicals; II % of the incidents are fires; and 38% of the incidents can be
classified as other.
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DRF A expects to see growth in its service commitments in Eastern Dublin, Western Dublin and the
Dougherty Valley.
LIVERMORE:
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The Livermore Fire Department provides services in all study areas. Livermore reduced one Deputy
Chief position during the recession and currently maintains three Division Chiefs in operations
working a modified 40 hour week while being responsible for one or more management assignments.
These assignments include: Training, Emergency Medical Services, Citywide Disaster Preparedness,
Facilities and Equipment, and Community Education Programs.
One Deputy Chief supervises the Division Chiefs, maintains continuity across the three line
Divisions, is the department budget officer, assists in labor relations, and is the de-facto second-in-
command.
The Fire Marshal is a non-sworn, safety position that reports to the Fire Chief. He supervises three
Fire Inspectors, one Hazardous Materials Coordinator and two clerical staff. He is treated and
compensated as a Division Chief.
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The Fire Department is also responsible for the Building Department as a general safety function.
The Building Official is a non-sworn, non-safety position that reports to the Fire Chief. He is treated
and compensated as a Division Chief. He supervises a staff of 4 Inspectors, one Senior
Inspector/Plan Checker, one Plan Check Engineer and four clerical staff.
Livermore Fire also staffs a non-sworn Computer and Records System Manager. Her responsibilities
include the City Computer-Aided-Dispatch System at the Police Department and the Fire
Department micro-computer wide-area network. She also prepares departmental statistical reports
and assists on special study projects.
The Building Official and CAD-Records Supervisor were not included in this round of Functional
Consolidation Studies.
Significant program differences would include: additional prevention programs including residential
sprinklers and becoming a Hazardous Materials Certified Uniform Permit agency; tight integration
with the Building Department; use of Fire Companies in commercial occupancy inspections and
frequent public education programs to school and community groups; staffing a first responder
Paramedic Program to include one Paramedic per fire crew; being dispatched by a combined
PolicelFire PSAP.
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The Department currently protects 24 square miles containing a residential population of 65,000.
Total Incidents for 1994 were 3,269. Of that, 1,874, or 57%, were medical responses and 364, or
II %, were fires. To date, calls for service in 1995 are up 11 % over 1994. A fifth Fire Company
will become operational in February 1996. Initially located in the Northwest quadrant at Fire Station
Two, the City hopes to place it in a temporary facility near Airway Boulevard and 1-580 by early
1997.
Residential and commercial buildings are experiencing strong starts after a recession slow-down.
Over 400 new residential units will be completed in 1995. At any given time approximately 250 are
under way, with 2,500 approved units waiting to start. Retail is also expanding and includes a
regional office addition to the Costco store, a new downtown Orchard Supply store and a new eight
screen movie ,theater. Industrial expansion has restarted, especially in the area of tenant
improvement projects and semi-conductor manufacturing. Livermore is becoming increasingly
attractive to this industry given it's Fire Prevention and Hazardous Materials programs. One
company will be restarting the dormant Intel Plant and two others are significant manufacturing
start-ups.
Long term growth will occur in the North Livermore Valley, which through agreement with the
County, will ultimately annex to Livermore for services after a joint planning effort. Given the
current agreement, housing units south of May School Road could reach 12,000 with a population
of 30,000 people. This area also could hold 690 acres of commercial/industrial development with
a daytime workforce of up to 12,500. The South Valley plan includes vineyard preservation with
seven areas for light residential development. These areas combined could add another 1,500
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residential units and a population of 4,200 people to the South Valley. With these additions the build
out population of Livermore could reach l09,000 people.
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PLEASANTON:
The Pleasanton Fire Department provides services in all study areas. In the past few years,
Pleasanton has experienced a considerable amount of organizational change, such as the elimination
of two Chief Officer positions through retirements. The remaining Chief Officers are currently
working a modified 40 hour work week which includes specific management assignments, for
example, Administration and Fire Prevention, Operations, and Support Services and Training. In
1996, our current Battalion Chiefs will be reclassified to Division Chiefs. Based upon their assigned
duties and the structure of the organization, the classification of Division Chief is more appropriate.
Pleasanton provides fire suppression, emergency medical response and other emergency responses
to a residential population of approximately 58,000 in an area which encompasses approximately
23 square miles. Pleasanton currently averages 2,700 calls per year of which 65% are medical in
nature. All fire protection and prevention services are provided from three fire stations. Two located
east of Interstate 680 on Railroad Avenue and Santa Rita Road. The third station is located adjacent
to Stoneridge Mall west of Interstate 680. The department is staffed by 45 fire fighters (an additional
ten Firefighter/Paramedics will be hired in 1996), 4 managers, 2 Fire Inspectors and 1.5 support staff.
The total operating expense for all fire services during 1993/94 was 5.66 million dollars.
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The Hazardous Materials Program for Pleasanton is currently administered by one Battalion Chief
and a Contract hazardous Materials Specialist. The City Council recently authorized the department
to submit a Certified Unified Program Application (CUP A) to the State. Pleasanton would like to
encourage a cooperative approach to the coordination of Hazardous Materials Programs in the
Valley.
Pleasanton is fortunate to own and operate one of the finest training facilities in the state. It is a full
scale training facility with class rooms and a six story training tower. This is an important asset to
the Valley as it is the only training facility capable of supporting most day-to-day fire company
training requirements. The facility provides training capacity in such areas as fire attack, driver
training, engine testing, flammable liquid, live fire training, aerial operations and vehicle extrication
to all fire agencies in the Valley.
During the 1995/96 Fiscal Year Pleasanton will begin the installation of an "Opticom" traffic light
control system along its primary traffic routes similar to the systems currently utilized in both Dublin
and Livermore. In 1996, Pleasanton 'will also be implementing a non-transport Firefighter
Paramedic Program. In conjunction with the introduction of Paramedics the two person squad
companies will be phased out and four person engine companies will be implemented. As a result,
the classification of Lieutenant, previously utilized with the two person squads, will be eliminated
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and personnel currently holding that classification will be reclassed to Captain, During the first half
of 1996 Pleasanton will also begin utilizing Alameda County Dispatch services.
Two new fire stations are being planned to open within the next two to three years. Construction
is expected to begin in 1996 on an Emergency Response Facility at the new Ruby Hills
Development. An additional station has been funded, both the purchase of property and
construction, however, a date has not been set for construction or opening.
Organizational Charts - Current
The following Organizational Charts only illustrate currently funded positions which are
considered in this study
EMS Coanlizzatioa
Fm: CapWn
In each organization, the Battalion or Division Chiefs, support both line supervision and specialty
area management activities, The Deputy Chief and Fire Marshal in Livermore, as well as the EMS
Coordinator in DRF A, are only responsible for one service/specialty areas. As an example, each
agency has a Battalion Chief assigned to the duty of Training Officer in addition to their shift
supervision responsibilities. However, the Fire Marshal in Livermore is only responsible for Fire
Prevention duties.
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Proposed Organizational Chart Option #3
Tri- Valley Fire Protection Cooperative
Proposed Option #3
Fire Chi~rs
Dougherty
Liv~rmore
Pleasanton
. .............--....--
~ Planning
I Manager
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Fire Prevrntion Division Op~rations Division Training Division Admin. S~rvices Division: Support SVC5. Division
Fire Marshall! Division Chief Division Chief Division Chief . Division Chief
Division Chief .
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Livermore II A Shift EMS Training r iba .S;~.i~;; -: rs~ppii;;. :
Prevention Staff .Battalion Fire MIS Coordinator i Svc. Worker:
Chief Captain
PIe2Sllnton B Shift Fire Operations Training
Prevention Staff Battal ion Fire
Chief Captain
DRFA C Shift Specialist Training
Prevention Staff Battalion Fire
Chief Captain
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Legend:
Cooperative Civilian Positions
Safety Positions
Local Agency Discretionary Positions ,_
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. Proposed Organization
PROPOSED ORGANIZATION OPTION #3
In future years, the Tri- Valley Fire Protection Cooperative will change from its current configuration
to a model which has six service areas. The six service areas will be:
Fire Chiefs
Fire Prevention
Operations
Training
Administrative Services
Support Services
The six service areas will have separate responsibilities all of which, when combined, will provide
complete management services to the fIre agencies.
FIRE CHIEFS SERVICE AREA
This service area coordinates all service areas and consists of the Fire Chiefs and Plamring Manager.
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Fire Chiefs -
The Fire Chiefs of Dougherty Regional Fire Authority, Livermore Fire Department
and Pleasanton Fire Department provide general supervision and oversite to the
cooperative. In addition to the role within the cooperative, the Fire Chiefs serve as
the primary liaison between the cooperative and their governing bodies and fIre
departments. In order to support their activities, the Fire Chiefs conduct regular staff
meetings and manage the cooperative under guidelines developed and agreed upon.
Planning Manager -
This is a civilian manager who provides detailed analysis and prepares planning and
operational documents for the Fire Chiefs.
FIRE PREVENTION SERVICE AREA
This service area consists of a Fire Marshal who coordinates the three Fire Prevention Programs.
The individual Fire Prevention Programs will be supported by a Fire Prevention Supervisor in each
city/authority to coordinate the local staff.
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Fire MarshallDivision Chief -
This Officer is a civilian employee who serves at the Division Chief level. This .
position provides Fire Marshal services and general oversite to each agencies
program.
NOTE: The Fire Prevention Programs offered by Dougherty, Livennore and Pleasanton can be as identical
or unique as the community desires.
Supenrisors -
These positions are the responsibility of each agency and serve as the primary entry
point for the Fire Marshal into the local organization. It is recommended that these
are civilian positions.
OPERA nONS SERVICE AREA
This service area provides Incident Management Services and consists of a Division Chief and three
Battalion Chiefs (one affiliated with each shift). This division also serves to coordinate between the
operating crews and the other divisions.
Operations OfficerlDivision Chief -
This Officer is a safety employee at the Division Chief level who directly supervises
the Battalion Chiefs and offers general oversite to the Operations Division. This
Officer is responsible for developing and implementing operating plans.
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Battalion Chiefs -
These Officers are safety employees who serve at the Division Chief level. Each of
these Officers are affiliated with a shift. These Officers coordinate the daily
activities of their shift and provide the first level of Incident Management. In
addition, these Chief Officers will be assigned staff duties in special program areas.
TRAINING SERVICE AREA
This service area coordinates all professional development and in-service training services.
Training OfficerlDivision Chief -
This Officer is a safety employee who serves at the Division Chief level. The
Training Officer coordinates the training staff and develops training staff and
develops training programs and curriculum.
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Training Captains -
Each of these Fire Captains is a Line Captain assigned to a training slot. The three
specialty areas are Emergency Medical Services, Fire Operations, and Specialist
(such as Hazmat, Confined Space, and Heavy Rescue). In addition to serving in the
training capacity, these Officers provide the necessary program coordination services
within their specialty area.
ADMINTSTRA TIVE SERVICES SERVICE AREA
This service area provides all records management and fmancial support services, The primary task
will be the satisfaction of each local agency's policies and procedures.
Admin. Services Division Chief -
This Officer is a civilian employee who serves at the Division Chief level. The
Admin. Services Chief provides for all records management services, coordinates
personnel and purchasing services.
MIS Coordinator -
This position is a civilian employee who insures that the independent systems
necessary for each agency is coordinated for use by the cooperative.
SUPPORT SERVICES SERVICE AREA
Support Services Division coordinates all facility, fleet and supply activities. This coordination
insures a constant level of service throughout the cooperative.
Support Services Division Chief -
This Officer is a safety employee who serves at the Division Chief level. This
Officer coordinates all contracts with fleet and facility service providers.
Additionally, this Officer is responsible for developing master specification for all
major equipment.
Service \V orker -
This position is a civilian employee who is responsible for the delivery of materials
and minor maintenance services throughout the system.
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Proposed Organizational Chart Option #4
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Fire Marshall!
Division Chief
Livermore
Prevention Staff
Tri- Valley Fire Protection Cooperative
Proposed Organization Option #4
Operations Division
Division Chief
A Shift
Banalion
Chief
B Shift
Battalion
Chief
C Shift
Battalion
Chief
Legend:
Cooperative Civilian Positions
Safety Positions
Local Agency Discretionary Positions
r-----..---.
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............-.......
I I
II -I
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Division Chief :
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Training Division
Division Chief
EMS Training
Fire
Captain
'""D~t;-S;~~~"":
MIS Coordinator :
Fire Operations Training
Fire
Captain
Specialist Training
rll"C
Captain
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Support Svcs. Division
Division Chief
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Svc. Worker
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PROPOSED ORGANIZATION OPTION #4
Option #4 varies from option #3 in that the following noted changes occur:
FIRE CHIEF SERVICE AREA
This service area coordinates all service areas and consists of the Fire Chief, Assistant Chief and
Planning Manager.
Fire Chief -
The Fire Chief provides general supervision and oversight to the cooperative. In
addition to the role within the cooperative, the Fire Chief serves as the primary
liaison between the cooperative and their governing bodies and fire departments.
Assistant Chief -
This person serves as the reorganized second in command and as the point of contact
between the various divisions and the Fire protection Cooperative Senior
Management.
Planning Manager -
This position is not utilized in this option.
FIRE PREVENTION SERVICE AREA
This service area is the same as option #3.
OPERATIONS SERVICE AREA
This service area is the same as option #3.
TR.\INING SERVICE AREA
This service area is the same as option #3.
ADMINISTRATIVE SERVICES SERVICE AREA
This service area is the same as option #3.
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SUPPORT SERVICES SERVICE AREA
~ . j ,
This service area is the same as option #3.
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Financial Imvact
.
In order to assess the financial impact of this project, it is necessary to consider those positions
which can be attributed to the proposal, Administrative and Clerical staff are not considered since
it is anticipated that this support staff will remain relatively constant.
The evaluation was conducted by assigning each position to tier based upon its relative total
compensation.
Tier Position Cost Current Current Option #3 Option #3 Option #4 Option #4
(ooO's) Position Cost Positions Cost Positions Cost
(OOO's) (OOO's) (OOO's)
I Fire Chief $135 3 $405 3 $405 1 $135
II Deputy Chief! 126 1 126 0 0 1 126
Assistant Chief
~ .._~
ill Division Chief 117 9 1,053 4 468 4 468
Battalion Chief(40hr)
Fire Marshal 117 1 117 1 117 1 117
CADIRMS Manager 117 1 117 0 0 0 0
N Battalion Chief (56 hr) 98 ~- 0 0 3 294 3 294
PlanningManager 98 0 0 1 98 0 0
MIS Coordinator 98 0 0 1 98 1 98 .
V Fire Captain (40 hr) 87 1 87 3 261 3 261
VI Service Worker 50 0 0 1 50 1 50
Total 16 $1,905 17 $1,791 15 $1,549
Difference from <$114> <$356>
Current
Note: This chart utilizes typical total compensation in thousands.
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Accomvlishments to Date
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Since this effort began in early 1993. There have been a number of accomplishments. Included are
the following:
Regular Staff Meetings - The Fire Chiefs have established regular, twice monthly staff
meetings. The purpose of the meetings is to work with staff members and reach consensus
on Issues.
Shift Alignment - All line employees are currently on the same work schedule. Chief
officers work similar schedules.
Team Problem Solving - Mid-level Chief Officers meet regularly to discuss problems and
resolve issues.
Radio Systems - Dougherty, Livermore and Pleasanton have compatible 800 MHz and VHF
radio systems
Paramedic Training - All departments are participating in the same paramedic training
program. Dougherty and Pleasanton share the same candidate selection process.
.~
Joint Testing - In addition to the current Twin Valley recruit all three agencies are working
together in varying degrees on promotional testing.
Vehicle Maintenance - Livermore and Dougherty share one vehicle maintenance program.
Apparatus Specifications - It is expected that the three departments will have common
specifications for Type I Fire Engines by January, 1996.
Joint Response Agreements - Livermore and Pleasanton have a Formal Joint Response
Agreement for Ruby Hills.
Joint Response Plans - Dougherty and Pleasanton have Joint Response Plans for freeway
incidents, truck company responses and light and air unit responses.
Dispatch Services - Effective early 1996 Dougherty and Pleasanton will be dispatched by
the same dispatch center.
Duty Chief Coverage - Dougherty and Pleasanton have occasionally shared Duty Chief
coverage.
EMS Coordination - Dougherty and Pleasanton share one EMS Coordination program.
.-
Training - The three departments will share one master training calendar in 1996.
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EMT Recertification - Dougherty and Pleasanton share a recertification program. In 1996
all three departments expect to be in the same recertification cycle/program.
Issues to Resolve
Assuming the Managers elect to precede with the functional consolidation as proposed, the following
issues need to be considered:
· Select preferred option.
· Obtain support and participation at the political level.
· Determine how the compact is formed.
· Determine how expenses are divided.
· Determine Transition Schedule.
· Resolve Employee Relations Issues
~
How employees transition.
Identify new career paths.
How are wages and work hours stabilized.
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