HomeMy WebLinkAboutItem 02 Eugene Springfield Fire Governance UpdateAGENDA ITEM SUMMARY
Meeting Date:
Meeting Type:
Staff Contact/Dept.:
6/20/2022
Work Session
Niel Laudati, CMO
AIC Chief Scott
Cockrum
Staff Phone No: (541) 726-3780
Estimated Time: 20 Minutes
SPRINGFIELD Council Goals: Strengthen Public Safety
CITY COUNCIL by Leveraging
Partnerships and
Resources
ITEM TITLE: EUGENE -SPRINGFIELD FIRE GOVERNANCE UPDATE
ACTION The purpose of this work session a to provide a brief informational overview
REQUESTED: of the Eugene -Springfield Fire Governance Review Panel process.
ISSUE Eugene Springfield Fire (ESF) has been operating as a functionally
STATEMENT: consolidated Fire Department under an Oregon Revised Statute Chapter
(ORS 190) intergovernmental agreement since May 24, 2010. This
agreement is between the City of Eugene and the City of Springfield. The
agreement does not create a separate legal entity, consequently the Fire
Department operates as a cooperative model rather than a true consolidated
model.
Between May 2010 and May 2017, four amendments were made to the
original ORS 190 agreement. Each amendment further combined
employee's, emergency operations, fire marshal services, training, logistics,
sharing of equipment, but not administrative functions.
In February, 2022, the two cities formed a Governance Review Panel (GRP)
as the first step of a three phased approach to exploring and assessing the
strengths and challenges of the current structure, financial evaluation review,
and assessment of governance structure options and pathways to improving
efficiency in delivery of services. The GRP is nearing completion of phase
one (Exploratory Phase). The purpose of this work session a to provide a
brief informational overview of the GRP process.
ATTACHMENTS: Attachment 1
Attachment 2
Attachment 3
Attachment 4
Attachment 5
Attachment 6
— CMO Council Briefing Memo
— Functional Consolidation Timeline
— SWOT
- GRP Update Presentation Slides
— Resource list
— Governance Structure Model
DISCUSSION/ Staff will be available to answer questions.
FINANCIAL
IMPACT:
MEMORANDUM City of Springfield
Date: 6/20/2022
To: Nancy Newton, City Manager COUNCIL
From: Niel Laudati, Assistant City Manager BRIEFING
Scott Cockrum, Interim Fire Chief
Subject: Eugene -Springfield Fire Governance Update MEMORANDUM
ISSUE: Eugene Springfield Fire (ESF) has been operating as a functionally consolidated
Fire Department under an Oregon Revised Statute Chapter (ORS 190)
intergovernmental agreement since May 24, 2010. This agreement is between the City of
Eugene and the City of Springfield. The agreement does not create a separate legal
entity, consequently the Fire Department operates as a cooperative model rather than a
true consolidated model. The original stated objective of the consolidation was to
improve financial and operation efficiencies to best serve the needs of the growing
Eugene/Springfield metropolitan area.
Between May 2010 and May 2017, four amendments were made to the original ORS
190 agreement. Each amendment further combined employee's, emergency operations,
fire marshal services, training, logistics, sharing of equipment, but not administrative
functions.
In February, 2022, the two cities formed a Governance Review Panel (GRP) as the first
step of a three phased approach to exploring and assessing the strengths and challenges
of the current structure, financial evaluation review, and assessment of governance
structure options and pathways to improving efficiency in delivery of services. The
GRP is nearing completion of phase one (Exploratory Phase). The purpose of this work
session a to provide a brief informational overview of the GRP process.
COUNCIL GOALS/
MANDATE:
Strengthen Public Safety by Leveraging Partnerships and Resources
BACKGROUND
In 2007, discussions about a more reliable regional fire service between the City of Eugene
and the City of Springfield fire departments began. Staff identified that resources in both
cities were becoming more reliant on one another for a growing response need. Changes
began in dispatch protocol, and boundary drops responses between cities was being enhanced.
With these changes, fire department staff identified there were some negative interoperability
and safety consequences with the current response relationship and more could be done. In
June 2007, the Cities implemented the 3 -Battalion Integrated Response System that
effectively eliminated jurisdictional boundaries for the purposes of emergency fire, rescue,
fire -response EMS, hazardous materials and ambulance transport.
In 2009 Emergency Services Consulting International (ESCI) was hired to evaluate both
agencies and provide recommendations, options and opportunities that may create financial
efficiencies, improve operations, and create an enhanced response system. The ESCI study
determined a merger was both feasible and advisable for the two cities and identified
consolidating the two city fire departments would create a more efficient fire department
Attachment 1, Page 1 of 3
MEMORANDUM
Page 2
management structure by reducing duplications, improve interoperability, and create a more
sustainable and resilient emergency service. Simultaneous to the evaluation, the effects of the
recession were beginning to severely impact the budgets of both cities, making financial
efficiencies a priority.
The ESCI report identified several consolidation options. They included either city
contracting for services with the another; creating a Governmental Entity (wastewater
management model); creating a Special District, or for a short term, functionally
consolidating agencies through an ORS 190 until one of the other options became more
suitable for the climate. After deliberation between the cities, the functional consolidation was
implemented.
In July 2010, at the direction of elected officials, the cities took preliminary steps toward a
functional consolidation of the Eugene and Springfield fire departments. The goal was to
improve service effectiveness as well as produce cost efficiencies by moving towards a metro
fire service model. The functional consolidation was not a full merger of the two departments
but is a series of incremental (and reversible) steps toward a full merger, assuming those steps
proved successful.
There have been many achievements since 2010 including, but not limited to: a) consolidating
labor agreement among both cities and International Association of Fire Fighters, Local 851;
b) implementing a new schedule for the line along with a new rostering system; c) sharing
logistics for distribution of materials and supplies including the roll out of medication vending
machines in the fall of 2020; and d) co -locating all of administrative services staff to the
Emergency Services Center. Despite those achievements, some challenges remain while the
organization is still in the functional consolidation phase. For more details related to the
Eugene -Springfield Functional Consolidation please refer to Attachment A.
Last fall, the City Managers of Eugene and Springfield committed to a substantive exploration
of department structure and services, financial overview, governance evaluation. In January
2022, a three phased framework was established for completing a thorough evaluation.
• Phase I: Exploration / Education / Information - The purpose of this phase is to learn
as much about the strengths, challenges, and limitations of the current department
structure.
• Phase II: Plan Development, Consideration of options, and potential
direction/decision.
• Phase III: Implementation of direction/decision.
In February 2022, the Governance Review Panel was established for Phase I. The panel
includes two elected officials and the city manager from each city. Brenda Wilson, Executive
Director of Lane Council of Governments (LCOG), is the process facilitator. The GRP began
meeting in March 2022. The ESF staff members provided in-depth information related to all
aspects of department services and discussed the benefits and challenges related to the
limitations of the existing structure. Brenda Wilson, and Chief Cockrum provided an
overview of the existing Functional Consolidation IGA and explored four alternative
governance models. The overview of governance models included financial considerations,
and legal and process considerations (Attachment B).
Brenda Wilson and ESF staff began meeting with the GRP in March 2022. Below is an
overview of topics discussed.
Meeting 1: Governance Review Panel process, scope of work and timeline and overview of
the Eugene -Springfield Fire Department History.
Meeting 2: ESF Staff presentations: Fire Operations and EMS & Logistics.
Attachment 1, Page 2 of 3
MEMORANDUM
Page 3
Meeting 3: ESF Staff presentations: Administration and Finance, Human Resources, and an
overview of the existing current Functional Consolidation IGA.
Meeting 4: Exploration of alternative governance models (Part 1) - Modification of the
Current Functional Consolidation Agreement, Fully Contracting for Services,
Intergovernmental Entity (IGE).
Meeting 5: Exploration of Alternative Governance Models (Part 2) - Special District,
Regional Fire Authority, and Termination of the Current Functional Consolidation
Agreement.
The GRP had discussion about the strengths, weaknesses, opportunities and threats related to
the existing Functional Consolidation structure and what needs to be considered and evaluated
in planning for the future of the department in supporting the metro area. Attachment C
provides a summary GRP input.
The next meeting of the GRP will focus on the financial analysis of ESF and available
governance options. The cities have contracted with Moss Adams to provide a financial
analysis that informs the current financial structure, proportional cost sharing methodologies,
actual costs, long-term modeling for future consolidation, and 10 year financial sustainability
assumptions. This review is scheduled to be completed by the end of June.
All meetings have been noticed as public meetings and were streamed, recorded and available
on the City Websites. In addition, ESF Department established a website with links to all
meeting materials, minutes and recordings. This is information is available at
htt2s://www.eugene-or.gov/4924/Governance-Review-Panel (Attachment D).
PREVIOUS COUNCIL DECISION
May 27, 2020, Budget Committee
Recommend that City Council hold a work session on the GEMT funding, ATF, overall
funding of the fire department, and update on the Eugene Springfield Fire merger progress.
October 26, 2011, Work Session
Informational work session on Eugene -Springfield Fire Service Merger Update.
January 20, 2010, Work Session
Move to functional consolidation with follow-up reports indicating effectiveness (no motions,
work session only).
December 7, 2009, JEO Eugene and Springfield City Councils
Ambulance Transport Funding
RECOMMENDED ACTION: This is an informational update, no action is requested.
Attachment 1, Page 3 of 3
EUGENE
SPRINGFIELD SPRINGFIELD
. 0
FIRE kOREGON
4 APWL-N, len �Z�
• - - LCOG
LANE COUNCIL OF GOVERNMENTS
Eugene -Springfield Fire
Functional Consolidation Timeline
PURPOSE
This document provides a timeline of the Eugene -Springfield Fire Functional Consolidation.
EUGENE -SPRINGFIELD FIRE FUNCTIONAL CONSOLIDATION
TIMELINE
June 2007 Eugene and Springfield The 3 -Battalion System is initiated. The 3 -Battalion
System disregards the geopolitical boundary
between the jurisdictions, instead employing
dispatch protocols ensuring that the nearest
appropriate response resources are sent to the
location of an emergency, no matter whether they
are Eugene units, Springfield units or a
combination.
2008-2009 Eugene and Springfield Ambulance Transport System Joint Elected
Officials (JEO) Task Force conducts public
engagement including nine community forums and
an online survey regarding the governance
structure and funding stability for ambulance
service providers in central Lane County (Eugene
Fire & EMS Department, Springfield Fire & Life
Safety Department, and Lane Rural Fire/Rescue
District)
2009 Eugene and Springfield Emergency Services Consulting International
(ESCI) issues report titled "Eugene Fire & EMS and
Springfield Fire & Life Safety, Oregon Cooperative
Services - Feasibility Study"
December 1, Eugene and Springfield Fire Operations IGA goes into effect. The IGA
2009 focuses on shared apparatus and equipment
usage between both cities.
Attachment 2, Page 1 of 5
EUGENE
SPRINGFIELD SPRINGFIELD
FIRE OREGON
4-4 P^\-6
• w - LCOG
LANE COUNCIL OF GOVERNMENTS
December 7, Eugene and Springfield JEO meeting is held. Eugene and Springfield Fire
2009
Chiefs both recommend functional consolidation as
an incremental first step towards a full merger.
January 20,
Eugene Eugene City Council discusses a functional
2010
consolidation during a work session.
April 26, 2010
Springfield Springfield City Council receives an update on the
proposed consolidation.
May 17, 2010
Springfield Springfield approves the initial IGA for a functional
consolidation.
May 24, 2010
Eugene and Springfield The first functional consolidation IGA goes into
effect. The IGA reiterates the 2009 Fire Operations
agreement and consolidates administrative and
support functions. It specifically calls out that the
IGA will not alter the position of any firefighter.
July 14, 2010
Eugene and Springfield First Amendment to the functional consolidation
IGA. The amendment added that Workers'
Compensation process and coverage would fall
under city of employment.
December,
Eugene and Springfield Decision making process to continue the IGA or
2010
stop.
December 7,
Eugene and Springfield JEO meeting is held to authorize limited functional
2010
consolidation.
May 13, 2011
Eugene and Springfield Date of the shared Fire Chief position is extended
and the Fire Operations IGA is amended to extend
contract duration.
September 9,
Eugene and Springfield Consolidated Recruitment IGA goes into effect.
2011
The IGA combines Eugene and Springfield
recruitment processes for line personnel.
Successful candidates would be selected per City
based on eligibility list of alternating assignments.
September 9, Eugene and Springfield Second Amendment to the functional consolidation
2011 IGA. The amendment updated disciplinary action
language for functionally consolidated
administrative staff. Administrative staff would go
through the process per city of employment but
disciplinary actions can be issued by shared staff
(Fire Chief, Deputy Chiefs, Battalion Chiefs).
2
Attachment 2, Page 2 of 5
EUGENE
SPRINGFIELD
FIRE
i
RINGFIELD
OREGON
October 26,
Eugene
2011
November 1,
Eugene and Springfield
2011
February 27,
Eugene
2012
March 8, 2012
Eugene
May 14, 2012
Eugene and Springfield
October 2, 2012
Eugene and Springfield
December 1,
Eugene and Springfield
2012
December 6, Eugene and Springfield
2012
• Y LCOG
LANE COUNCIL OF GOVERNMENTS
Eugene Fire Chief Groves provides an update of
the functional consolidation to Eugene City
Council.
First amendment to the Fire Operations IGA. The
amendment revised 2009 Fire Operations
agreement so that apparatus and equipment can
be assigned by designated Deputy Chief of
Operations.
The ESCI "Eugene Fire & EMS and Springfield Fire
& Life Safety, Oregon Cooperative Services
Feasibility Study" is sent to Eugene City Council.
Eugene Fire Chief Groves provides a Memo to the
Eugene Mayor and City Council. The Memo
provides a proposed governance model of
expanding the IGA so that the two departments
function more like one department and an ultimate
goal of creating one organization.
Third amendment to the functional consolidation
IGA. The amendment updated the list of
administrative positions that are part of functional
consolidation and how one position is funded.
Operations IGA is executed.
Exchange of Services IGA is executed. This IGA
allows for logistics services (parts and supplies,
seamstress, equipment repairs) to be shared
between both cities.
Functional Consolidation IGA is amended and
restated. This reiterated the 2009 Fire Operations
agreement and consolidated administrative and
support functions. Cities agreed to participate in
joint bargaining for IAFF contract.
It included the following for liability/Indemnification:
- Cities are responsible for negligent actions of its
employees.
- Each city promises to defend, indemnify, hold
harmless, and release the other from any loss,
claim or liability arising from or out of negligent,
tortuous action(s) or inaction(s) of its employees,
officers, and officials. Such liability shall be
3
Attachment 2, Page 3 of 5
EUGENE
SPRINGFIELD
FIRE
December 14,
2012
i
RINGFIELD
kOREGON
4-4 P^\-6
• w - LCOG
LANE COUNCIL OF GOVERNMENTS
apportioned among the parties or other at fault
persons or entities.
Eugene and Springfield An Administrative Consolidation Plan for
Purchasing is developed. The Plan establishes
June 21, 2013 Eugene and Springfield
October 20, Eugene and Springfield
2012
August 6, 2014 Eugene and Springfield
purchasing guidelines and cost sharing.
First amendment to the Exchange of Services IGA.
The amendment extended contract duration and
created a cost share for a logistics position.
First Amended and Restated Functional
Classification IGA. This updated the signing
authority.
Exchange of Services second amendment. This
expanded services to include ordering, purchasing,
and equipment repairs; and to position cost
reimbursements.
September 8, Eugene Eugene City Council issues a proclamation that
2014 September 8th is Eugene -Springfield Fire Day.
September 5, Eugene and Springfield Second Amended and Restated Functional
2014 Classification IGA. This reiterated the 2009 Fire
Operations agreement and consolidated
administrative and support functions.
It added "IAFF Represented Employees" section:
- Recruitment and selection
- Work assignment
- Employees follow administrative procedures
manual per city of employment.
- Promotions and movement to other city.
- Workers' Comp process follows city of
employment.
- "If city receives a tort claims notice or is sued
based on an action (or failure to act) of an
employee in an IAFF position located in that city,
then that city is responsible for responding to,
defending and paying that claim or judgment. For
example, if a Springfield employee is filling a
Eugene IAFF position and a tort claim is received
related to the actions of that employee, then
Eugene shall be responsible for the defense and
payment of the claim."
4
Attachment 2, Page 4 of 5
EUGENE
SPRINGFIELD SPRINGFIELD
. 0
10, Y1 -
FIRE kOREGON
4 APWL-N, len �Z�
• 0 - LCOG
LANE COUNCIL OF GOVERNMENTS
January 26, Eugene and Springfield Third Amended and Restated Functional
2016 Classification IGA. This reiterated the 2009 Fire
Operations agreement and consolidated
administrative and support functions.
- Expanded Collective Bargaining.
- Expanded Facilities and Equipment.
- Combined 2012 Exchange of Services (Logistics)
agreement to IGA.
Revised shared personnel position list.
May 1, 2017 Eugene and Springfield Fourth Amended and Restated Functional
Consolidation IGA. This reiterated the 2009 Fire
Operations agreement and consolidated
administrative and support functions.
- Updated liability to include vehicles and
equipment.
5
Attachment 2, Page 5 of 5
EUGENE
SPRINGFIELD SPRINGFIELD
FIRE OREGON
STRENGTHS
• Team effort/vision to provide better service while controlling costs
• Functional Consolidation solved some issues of separate departments
• Original success of merger due to alignment of Chiefs at the time;
current alignment/positive relationship between Councils and City
Managers
• Services are streamlined and efficient with a structure that can take us
into the future
• Stakeholders are committed to transparency and efficiency with public
dollars
OPPORTUNITIES
• Make good/thoughtful decision about governance that addresses
problems efficiently without moving too fast to just get it done
• Make people and employees safer by being more coordinated
• Evaluate what is a sustainable structure moving forward for next 30
years
• Ask hard questions now
• Discussion of authentic and long-term efficiencies
• Greater understanding of financial information, legal analysis,
risks/benefits of each option for decision making
• Keep fairness and equity (staff, community members) in mind
• Cost savings and operational efficiencies gained
• Single reporting structure and single budget
• Give employees more confidence about future Department(s)
• Take care of employees/give employees what they need
• Parity between cities
• See ourselves as one large metro area
• Strategic plan and long-term sustainability
• Everyone satisfied with the outcome
• Service that functions at its best
• Clear guidance for cities, more clarity on roles and responsibilities
• Vision for the department(s)
WEAKNESSES
• Lack of clarity/certainty/direction
• ESF dependent on everything working the right way (precarious)
• Persistent issues relating to current Functional Consolidation
• Administration, human resources and operations are strained,
complex
• Employees do not have confidence about future Department(s)
• Need to simplify system and structure (two budgets, employee pay
and benefits, technology, etc.)
• Employees have different structures, benefits, etc.
• Difficulty recruiting and retaining staff
• ESF is not benefitting from economies of scale
• Employees need to have equity and feel part of a team
THREATS
• Supply chain issues preventing economies of scale
• How ESF operates is precarious due to complexities
• Differences of opinions between the jurisdictions and their councils
(success depends on alignments)
• Public perception — believe that merger is complete
• This process could take decades
• Cities have different definitions of level of service and service
expectations, see this process differently, trust issues
• Territorial and adversarial
• Egos
• Getting bogged down in how we got here, finger pointing, pre-
conceived notions
• Opposing views/different ideas on Governance
• Perceptions may not be grounded in facts
• Can't be a political issue — need to do what's right for the community
and Department(s)
• If it's too expensive and one city can't afford it services to the public
may be impacted in the future
• Some people may think a district was promised in the past
Attachment 3, Page 1 of 1
9Oki 1►Eel 2 I0 N 0,
Eugene
F EUGENE
SPRINGFIELD
1 FIRE /
Our Mission: To serve our communities by preserving life, protecting property, and the environment through prevention,
education, emergency medical services, rescue, and fire suppression services.
Fire Departments across the county provide
fire suppression and emergency medical
response. As cities and communities have
grown and grown together, their emergency
services needs, and costs have increased at a
fast pace, outpacing many jurisdictions
overall priorities.
Attachment 4, Page 2 of 14
In 2010, the City of Eugene and the City of
Springfield Functionally Consolidated with
the goal of finding efficiencies and to provide
a high level of services to both communities.
Many of those goals were achieved.
�J
EVALUATION OF ESF STRUCTURE /GOVERNANCE
Phase I - Education & Information
Phase II - Plan Development, Options & Decision
Phase III — Implementation
M
Facilitator
Brenda Wilson, Executive Director
LCOG Lane Council of Governments
LANE COUNCIL OF GOVERNMENTS
Subject Matter Expert
Scott Cockrum, Interim Fire Chief
QUI_
VEE-HONOR- Eugene Springfield Fire Staff
SPRINGFIELD
OREGON
City of Springfield
Kori Rodley, City Councilor
Steve Moe, City Councilor
Nancy Newton, City Manager
City of Eugene
Aft, Mike Clark, City Councilor
Randy Groves, City Councilor
1WSarah Medary, City Manager
Attachment 4, Page 4 of 14
4
Home, Govern ment � Departments, Fi rea nd E mergency Med ira 1 Services � Governance Review Panel
Governance Review Panel
The City of Eugene Fire & EMS and the City of Springfield Fire & Life Safety departments merged to farm Eugene Springfield Fire
(ESF) in 2010.This partnership has proven to be beneficial to both communities over the last decade. The Eugene Springfield Fire
Governance Review Panel was established to evaluate and identify the next steps for the governance of the two departments. This
workcontrnues efforts to create the most efficient and effective system forfi re and life safetyservices within our community.
Goals
The Eugene Springfield Fire Governance Review Panel was established to
• raise awareness of the current model and remaining considerations for rmproved efficiencies
• share progress and bur Id confidence -in process
• keep key audiences informed on process/decisions/outcomes
Members
Steve Mae
Cityof Springfield
City Cc ncilor
Kari Radley_
Mike Clark
City of 5 pri ngfie Id City of Eugene
CityCounci for City Councilor
Attachment 4, Page 5 of 14
Randy Groves
City of Eugene
CityCouncilor
5
■ An operational structure and plan that provides sustainable funding and service levels
and meets the growing needs of the Eugene/Springfield metro community
■ Efficient operations and streamlined decision processes
■ Address concerns and needs of both cities and stakeholders
■ Path forward to address concerns that can be supported by both cities
6
Attachment 4, Page 6 of 14
■ To facilitate a broad, neutral evaluation of governance options for Eugene and
Springfield's fire departments.
■ To produce a greater and clearer understanding of the social, operational, legal,
financial, and political considerations of any alternative.
■ To educate all stakeholders of the ESF services in a clear and consistent manner
about the current operations and options for alternatives.
■ To give decision makers a firmer foundation for critical decisions on the matter.
Attachment 4, Page 7 of 14
GOVERNANCE REVIEW PANEL 2022
March 3 March 17 March 31
Governance Review Panel • Operations • Administrative Services
Goals • EMS • Human Resources
• ESF Overview • Logistics Existing Agreement between
Eugene & Springfield
April 14 April 28 -
• Governance Options (Part • Governance Options (Part 2)
• Modification of Current • Special District
IGA • Regional Fire Authority ' •
• Fully Contracted Services • Termination of Current
• Intergovernmental Entity IGA
Unified operations in a Created Functional
3 -Battalion System, 190 Consolidation IGA,
for Enhanced Auto Aid, Operated as an Integrated
CAD change, Common Response, consolidated
SOP Training, EMS
'D +e 7 OA -r Pz'jW
Joint Elected Officials
meet regarding
Functional Consolidation
and Ambulance
Transport System
Shared
Logistics
Services
Ambulance Billing
personnel merged
operations
0-* 07
MOU: with IAFF Local 1395
allowing merging fire
prevention, fire investigation
2012 Battalion Chiefs
began to operate in
different battalions
Attachment 4, Page 9 of 14
IAFF Labor
Agreements merged
0-7 ' 'r
Operations personnel
fully merged
9
Successes across all divisions: Operations, Strategic Services, Fire Prevention, and Administration
Shared Strengths
Standardization and Improved Safety Efficiencies 0 Improved interoperability and increased depth
• Consistency in operational tactics and strategies • Single training, recruitment, and hiring process
of resources
• Standardization of training and EMS services • Shared EMS CQI,Training and Medical Director
• CAD response files to reflect closest unit
• Standardized Equipment
• Shared ambulance transport system
• Unified Logistics, Safety sections
• Less redundant administrative support
Attachment 4, Page 10 of 14
response regardless of jurisdiction
• Automatic surge capacity
• Efficient use of reserve apparatus
• Centralized decision-making- covid response,
cad/sop changes
10
Current governance model presents challenges across different areas
What is the Foundation to the future?
Employee Equity
Two
employers
IT Access Issues
• Multiple systems
• Different formats
between cities
Contract and
purchasing
processes
Attachment 4, Page 11 of 14
I
F'Fire Marshal's`
permit fee's
outdoor burning
regs different
HR Policy
Pay Disparity
• Benefits
• Insurance
• Employee
Resources
Standardization of
Service
Labor agreements
• 4 contracts that need to
be negotiated with two
sperate cities
Difference s
• Internal recruitment
between
processes create
)
inequities if moving to
payroll
new city of employmen
systems
IT Access Issues
• Multiple systems
• Different formats
between cities
Contract and
purchasing
processes
Attachment 4, Page 11 of 14
I
F'Fire Marshal's`
permit fee's
outdoor burning
regs different
HR Policy
Pay Disparity
• Benefits
• Insurance
• Employee
Resources
Standardization of
Service
Existing IGA
■ ORS 190 IGA Established 2010
■ Functional Consolidation
■ 4 Updates
Overview of Alternatives
r Modify the current IGA.
■ Contract for services.
■ Move to an Intergovernmental Entity model (like Wastewater Management)
■ Create a special district or annexing to an existing one.
Create a Regional Fire Authority (RFA)
Terminate the current IGA
Attachment 4, Page 12 of 14
12
Moss Adams
Financial Assessment
Developing costing and
forecasting models
Next GRP Meeting
June 30
Attachment 4, Page 13 of 14
Follow-up
Return to City Council
with updates
QUESTIONS OR COMMENTS?
Al
TAM.
All
Upcoming Meetings & Archived Meeting Materials
March 3, Virtual Zoom Meeting 1 Agenda March 3, 2022 Meeting Recording
2022 Meeting March 3, 2022 Meeting Summary
2:30 pm - 4:30 Recording ESF Overview Presentation
pm available ESF Overview Video
March 17, Virtual Zoom Meeting 2 Agenda
2022 Meeting
2:30 pm - 4:30 Recording
pm available
March 17. 2022 Meeting Recordin
March 17, 2022 Meeting Summary
ESF Operations Presentation
ESF Operations Video
ESF EMS & Logistics Presentation
ESF EMS & Logistics Video
Response to Meeting 1 Questions
March 31, Virtual Zoom Meeting 3 Agenda March 31, 2022 Meeting Recording
2022 Meeting March 31, 2022 Meeting Summary
2:30 pm - 4:30 Recording ESF Administrative Services
pm available Presentation
ESF Human Resources Presentation
ESF Existing Agreement Presentation
April 14, 2022 Virtual Zoom Meeting 4 Agenda April 14, 2022 Meeting Recording
2:30 pm - 4:30 Meeting April 14, 2022 Meeting Summary
pm Recording ESF Governance Options (Part 1)
available Fact Sheet: Modification of Current IGA
April 28, 2022 Virtual Zoom Meeting 5 Agenda
2:30 pm - 4:30 Meeting
pm Recording
available
Fact Sheet: Fully Contracted Services
Fact Sheet: Intergovernmental Entity
IGE
SWOT Analvsis of Governance
C'nmmPntc
Aaril 28.2022 Meetinc Recordin
April 28, 2022 Meeting Summary
ESF Governance Options(Part 2)
Fact Sheet: Special District
"What is a Special District?" - SDAO
Fact Sheet: Regional Fire Authority
Fact Sheet: Termination of Current IGA
June 30, 2022 Virtual Zoom Will be available Will be available July 5, 2022
2:30 pm - 4:30 Meeting June 28, 2022
pm Link will be
provided
Attachment 5, Page 1 of 2
Additional Resources
Reference Materials
1. ESCI 2009 Eugene Springfield Fire Feasibility Study_.pdf
2. ESCI 2009 Feasibility Study Summary
3. ESCI 2020 Community Risk Assessment.pdf
4. ESF Governance Review Panel Rules of Conduct.pdf
Frequently Updated Information
1. ESF Governance Review Panel FAQs 4-12-2022
2. ESF Governance Review Panel Communications Plan 2-28-2022
3. ESF Governance Review Panel Work Plan 4-27-2022
Attachment 5, Page 2 of 2
GOVERNANCE STRUCTURES
GOVERNANCE
TYPE
SUMMARY DESCRIPTION
The IGA is a Functional Consolidation Agreement between Eugene and
Springfield with the stated purpose of the cities' two separate fire departments
operating as a single fire and EMS department with a single name ("Eugene
Springfield Fire"), but it is not a legal entity/body. The Agreement sets out a list
Modification of
of Eugene and Springfield positions that comprise the functionally consolidated
Current
administration and support system, provides that the Fire Chief shall serve as the
Intergovernmental
Fire Chief for both Eugene and Springfield, and establishes that IAFF
Agreement (IGA)
represented employees can be assigned to work out of any fire station. All
employees covered by the Agreement are employed by either Eugene or
Springfield and are subject to their city -employer's personnel policies. The two
cities retain all of powers as independent governments and adopt separate fire
department budgets.
Under this option, one city would contract with the other for services. Contracted
services could include, but aren't limited to, Fire/EMS operations, Fire Marshal
permitting and investigations, billing, training, and general administration. The
City Councils determine the desired level of services and negotiate an agreement
Fully Contracting
based on the level of emergency and support services desired and contracted for,
for Services
taking into consideration Standards of Coverage and response standards. The
agreement could create a single point of budget, purchasing, accounting, human
resource, IT solutions, and employee equity. Depending on the scope of the
contracted services, some or all of the employees of the contracting city could
become employees for the city providing the service under the successor City's
overnance and employment structure.
An IGE is a public entity with specific and limited governmental powers and
responsibilities, not unlike a city but with some notable differences. An IGE
could be created by the City Councils through an agreement delegating certain
governmental tasks and responsibilities to the newly created IGE.
The IGE is governed by members who are appointed by the City Council(s).
Generally, Oregon law treats an IGE as a public body; thus, most laws that affect
Intergovernmental
the founding governments also apply to the IGE and the services it provides. The
Entity (IGE)
Metropolitan Wastewater Commission (MWMC) is an example of an IGE with
limited power, i.e., a single governance structure but no employees. All
governance, financial, administrative (IS, HR, payroll, legal, etc.), personnel,
facility, equipment, and liability details for the IGE would be set forth in an
agreement between Eugene and Springfield. The term or duration of the
agreement, which may be perpetual, and the rights of the parties to terminate the
agreement are negotiated in the agreement.
Attachment 6, Page 1 of 2
GOVERNANCE SUMMARY DESCRIPTION
STRUCTURE
Attachment 6, Page 2 of 2
Special districts are a form of local government. They are created by their
constituents to meet specific service needs for their communities. Most perform a
single function such as water delivery, fire protection, or cemetery maintenance.
Special District:
A Special District would become an independent agency with a separate
governance and funding structure. A district's taxation falls under the Oregon
constitutional limits for taxation. There are two considerations for ESF within the
special districts option: 1) formation of a Rural (Regional) Fire Protection
district, and 2) annexation to an existing fire district.
A Rural Fire Protection District would become an independent organization with
Formation
its own board and taxing authority. An elected board made up of electors who are
either landowners or residents governs the district. The board hires a fire chief to
manage the affairs of the district.
One or both of the cities of Eugene and Springfield could annex to an adjacent
Annexation
special district and responsibility for fire protection (including governance and
funding) in the annexed area transfers to the that district. Employees, facilities,
and equipment would also transfer to the district.
RFAs, common in Washington, are not currently provided for under Oregon law.
Under Washington law an RFA is an independent municipal special purpose
district established by voters in a service area that provides funding for fire and
Regional Fire
emergency medical services. An RFA operates very similar to that of a fire
Authority (RFA)
district and would create a single fire service provider and could be funded by
such mechanisms as a fire property tax levy and/or fire benefit charge. The RFA
has a range of governance options, but regardless of the RFA Plan details, all
governing board members are elected officials residing within the RFA
boundaries. Firefighters and all other staff from the two cities would become
employees of the RFA.
Termination of
Terminating the current Functional Consolidation Agreement would restore both
Current Functional
Eugene and Springfield with autonomy for their own separate fire departments,
Consolidation
including service and employees returning to previous boundaries and Fire
Agreement
Administration in each city. Cities could negotiate for services they would like to
contract: training, EMS, logistics, fire prevention, etc.
Attachment 6, Page 2 of 2