HomeMy WebLinkAboutItem 01- ESF Governance AGENDA ITEM SUMMARY Meeting Date: 3/4/2024
Meeting Type: Work Session
Staff Contact/Dept.: Mike Caven
Staff Phone No: (541)682-7115
Estimated Time: 60 minutes
S P R I N G F I E L D
C I T Y C O U N C I L
Council Goals: Strengthen Public Safety
by Leveraging
Partnerships and
Resources
ITEM TITLE: EUGENE SPRINGFIELD FIRE GOVERNANCE REVIEW UPDATE
ACTION
REQUESTED:
No action requested.
ISSUE
STATEMENT:
Eugene Springfield Fire (ESF) staff will present information regarding the status of
the ESF Governance Review project status. AP Triton representatives will present
information regarding the ESF current conditions.
ATTACHMENTS: 1. ESF AP Triton Feasibility Study Update presentation
DISCUSSION/
FINANCIAL
IMPACT:
There are no financial impacts at this time. The information provided in this update
is for the purpose of keeping the Council informed regarding the AP Triton
Feasibility Study that is on-going.
ESF Feasibility Study Update February 2024
1
VISION INNOVATION SOLUTIONS
Feasibility Study: Administrative Staffing
and Governance Structure
Update on Progress and Timelines
Presentation of Findings Related to Current Conditions
February 2024
Purpose of Study
The Cities of Eugene and Springfield retained AP Triton to conduct
a Feasibility Study to evaluate the following options:
•Continuing to operate as ESF as it is currently organized.
•Establishing an intergovernmental agreement (IGA) to allow one city to
provide service to the other.
•Establishing an intergovernmental agreement (IGA) to form an
intergovernmental governmental entity (IGE).
•Forming an independent fire district.
•Dissolving the existing agreement and returning it to individual city fire
agencies.
1
2
Attachment 1
Page 1 of 13
ESF Feasibility Study Update February 2024
2
Timelines
•August 9: Kick off project with ESF Staff
•August 29: Met with Governance Review Panel
•October 9: ESF completes the data upload
•Week of October 30: AP Triton on site for Stakeholder meetings
•December 7: First draft of introduction and findings related to current
conditions delivered to ESF for technical review
•December 27: Draft of introduction and findings related to current conditions
delivered to the Cities of Eugene and Springfield for technical review
•February 9: City Staff completes much of the technical review of draft
Next Steps
February/March:AP Triton will provide updates to elected officials
Governance Review Panel on February 22
Eugene City Council on February 26
Springfield City Council on March 4
Late March/Early April: First draft of full report should be available for
technical review by ESF and the City Managers
Late April/Early May:Final draft of the report should be available for
presentation to the Governance Review Panel and both City Councils
3
4
Attachment 1
Page 2 of 13
ESF Feasibility Study Update February 2024
3
Background
2007: 3rd Battalion system
2010: Functional Consolidation
•Fire Departments branded as Eugene-Springfield Fire (ESF)
All apparatus, stations, uniforms, and branding reflecting the new name and logo
•Eugene and Springfield remain independent entities and operate with
separate Fire and EMS budgets
•Duplicated Administration and Support positions were eliminated
•Employees working within ESF are designated as either Eugene or Springfield
employees, not ESF employees
•Operations employees are assigned to stations regardless of their employer
ESF Service Area
5
6
Attachment 1
Page 3 of 13
ESF Feasibility Study Update February 2024
4
ESF Population Served
% TotalPopulationCity/District
68.4%176,654City of Eugene
0.2%503Bailey-Spencer RFPD
0.4%952Eugene Rural #1
3.0%7,647River Road Water District
0.4%1,003Willakenzie RFPD
0.5%1,217Zumwalt RFPD
72.8%187,976Subtotal for Eugene with Districts
23.9%61,851City of Springfield
0.5%1,330Glenwood Water District
2.0%5,156Rainbow Water District
0.8%1,967Willakenzie RFPD
27.2%70,304Subtotal for Springfield with Districts
100%258,280Total for Eugene-Springfield Fire
Service Delivery
ESF provides fire suppression, emergency medical services, rescue, public
education, fire inspection, and code enforcement from 16 fire stations.
•Springfield operational staffing from five stations each day
One Battalion Chief
Four engine companies (3 person)
One truck company (3 person)
Three ALS ambulances (2 person), One 12-hour/peak demand BLS Ambulance (2 person)
•Eugene operational staffing from 11 stations each day
Two Battalion Chiefs
Eight engine companies (3 person)
Two engine/ladder companies (3 person)
Two truck companies (3 person)
One ARFF company (2 person)
Four ALS ambulances (2 person), Two BLS ambulance (2 person)
7
8
Attachment 1
Page 4 of 13
ESF Feasibility Study Update February 2024
5
ESF Financial Summary
REVENUES
Revenues increased from $23.6 million in FY 2019 to $29.1 million in FY 2023, (23%).
Eugene generated 69% of total FY 2023 revenue, while Springfield generated 31%.
Significant revenue sources in 2023 include:
•EMS fees: $14,338,869 (67% Eugene and 33% Springfield)
•GEMT Revenues: $5,735,415 (69% Eugene and 31% Springfield)
•Reimbursement for fire services: $4,562,751 (59% Eugene and 41% Springfield)
•Grant revenues: $731,559 (70% Eugene and 30% Springfield)
EXPENDITURES
Total expenditures increased from $70 million in FY 2019 to $84.4 million in FY 2023 (21%).
Eugene incurred 72% of all expenditures in FY 2023, with Springfield incurring 28%.
Major areas of expenditures in 2023 are:
•Personnel: $60,493,232 (74% Eugene and 26% Springfield)
•Materials, Supplies, and Contractual costs: $7,822,173 (55% Eugene and 45%
Springfield)
•Interdepartmental Fleet costs: $3,582,965 (79% Eugene and 21% Springfield)
•Vehicles and Equipment: $1,191,544 (40% Eugene and 60% Springfield)
Eugene Fire Financial Summary
REVENUES
Over the past five fiscal years (from FY 19 through FY 23), Eugene Fire and EMS
revenues have increased from $15.7 million to $20 million.
Significant increases in GEMT revenues have contributed to this overall increase.
Additionally, revenue from EMS fees has increased from $9.1 million to $9.6 million.
EXPENDITURES
During this same period, expenditures have increased by 23%, from $49.3 million to
$60.6 million.
Significant areas of increase include personnel costs (74% of Eugene’s overall Fire and
EMS expenditures) and Materials, Supplies, and Contractual costs.
9
10
Attachment 1
Page 5 of 13
ESF Feasibility Study Update February 2024
6
Springfield Fire Financial Summary
REVENUE
Since 2019, Springfield Fire and EMS revenues have increased by 16%, from
$7.9 million to $9.2 million.
GEMT revenue increases account for much of this difference.
EXPENDITURES
During the same period, expenditures increased by 15%.
Materials, Supplies, and Contractual costs increased by $1.7 million, or 95%.
FY 2023 expenditures were $23.8 million, compared with $20.7 million in FY 2019.
Personnel costs accounted for approximately 66% of total FY 23 expenses.
Admin and Support (2010–2023)
In 2010, the total number of Admin and Support employees in both cities was 59.25.
Today, that number has reduced to 53.
EUGENE
In 2010, Eugene employed 41.25 Admin and Support Positions.
•68.01% of the combined departments’ cost of Admin and Support positions.
Today, Eugene employs 39 Admin and Support Positions.
•74.23% of ESF Admin and Support position costs.
SPRINGFIELD
In 2010, Springfield employed 18 Admin and Support Positions.
•31.99% of the combined departments’ cost of Admin and Support positions.
Today, Springfield employs 14 Admin and Support Positions.
•25.77% of ESF Admin and Support position costs.
11
12
Attachment 1
Page 6 of 13
ESF Feasibility Study Update February 2024
7
City of Eugene
There are 5.25 positions funded in 2010 that are not funded today and three (3)
new positions that were not funded in 2010 for a net reduction of 2.25 positions.
Positions not funded today compared to 2010:
Deputy Chief
Finance Manager (Filled by Eugene, funded by Springfield)
Battalion Chief Training (Filled by Eugene, funded by Springfield)
Battalion Chief Fire Marshal
0.75 Deputy Fire Marshal/Fire Inspector
0.5 Program Support positions (net change)
Three positions funded today that were not funded in 2010:
EMS CQI, EMS/Fire Instructor, Applications Systems Analyst
City of Springfield
There are 6 positions funded in 2010 that are not funded today and two new
positions that were not funded in 2010 for a net reduction of 4 positions.
Positions not funded today compared to 2010
Fire Chief
Deputy Chief
Two (2) Deputy Fire Marshal/Fire Inspectors
Executive Assistant
Program Support position
Two positions funded today that were not funded in 2010
Fire Maintenance Worker, Application Support Technician
13
14
Attachment 1
Page 7 of 13
ESF Feasibility Study Update February 2024
8
Reduced Costs from Merger
11.25 Admin and Support positions have been eliminated in the
combined ESF organization since 2010.
Reduced cost of $2,532,946 at 2023 wages and benefits each year.
EUGENE
Eugene eliminated 5.25 positions in Administration and Support.
Reduced cost of $1,198,170 at 2023 wages and benefits each year.
SPRINGFIELD
Springfield eliminated 6 positions in Administration and Support.
Reduced cost of $1,334,776 at 2023 wages and benefits each year.
Net Reduction of Cost
11.25 Admin and Support positions have been eliminated and five new positions
have been created for ESF since 2010 for a net reduction of 6.25 positions.
Reduced cost of $1,657,084 at 2023 wages and benefits each year.
EUGENE
5.25 positions eliminated, three new positions for a net reduction of 2.25 positions.
Reduced cost of $527,297 at 2023 wages and benefits each year.
SPRINGFIELD
6 positions eliminated, two new positions for a net reduction of 4 positions.
Reduced cost of $1,129,787 at 2023 wages and benefits each year.
15
16
Attachment 1
Page 8 of 13
ESF Feasibility Study Update February 2024
9
Balance of Cost Reduction
The 2017 IGA does not identify a defined balance of funding from each city
Target is maintaining each city’s service level while benefiting from shared
administrative positions.
Percentage of the cost of employees from each department in 2010 compared
to the total workforce for Admin and Support
2010: Eugene was 68.01% compared to Springfields 31.99%.
2023: Eugene is 74.23% compared to Springfields 25.77%.
Applying 2010 percentage to 2023 Admin and Support Position Costs
Eugene’s personnel expenditures would be $599,719 less each year.
Springfield's personnel expenditures would be $599,719 more each year.
NOTE: AP Triton will be providing recommendations for sharing in this cost in the Strategic
Analysis of Options section of the report that may be more directly related to the demand for
administration and support services as opposed to an arbitrary point in time to identify a
percentage for shared costs.
Admin and Support Functions
ESF Leadership
Fire Chief is a Department Head in both Eugene and Springfield.
ESF Leadership and administrative team are tasked with typical city-level
department administrative functions.
The team works with two different cities’ support services and administrations.
City Support
Each city provides typical support services independently, such as Finance, HR, IT,
Fleet Maintenance, and Facility Maintenance.
Working with ESF is unique for most city support services.
Efforts to improve workflow
Both cities have endeavored to improve the workflow for administrative functions.
Complications in all support areas persist due to the distinct governance and
administrative structures at the city level.
There are considerable process differences unique to each city, depending on the
employee, apparatus, facility, or specific issue requiring city support function
involvement.
17
18
Attachment 1
Page 9 of 13
ESF Feasibility Study Update February 2024
10
Advantages Today
Effective and efficient operational deployment as a single
agency.
Emergency response and surge capacity has been greater since
the functional merger.
Broader scope and resource availability provides greater service
then could be accomplished by either city on their own.
Reduced duplication of administration positions provides
significant economies of scale and savings in administration and
support staffing each year.
Reduced cost of $2,532,946 at 2023 wages and benefits each year.
Key Challenges
Governance and Administration
Managing accountability to two different City Managers and City Councils and
participating in leadership teams across both cities requires delicate balance and
coordination to meet expectations of city leadership and support services.
Feeling Fire Department is Outsourced
Some Springfield officials feel they have “outsourced” their fire department to
Eugene.
Budget Process
ESF must develop two separate budgets within different processes and under two
city governments.
Human Relations
Working through different HR policies and practices between two cities as ESF
manages an evolving environment and workforce is difficult.
19
20
Attachment 1
Page 10 of 13
ESF Feasibility Study Update February 2024
11
Key Challenges
Health Benefits
The two cities offer different health plans. Eugene provides a low deductible plan,
while Springfield offers a high deductible plan with access to a free city clinic for
employees. Though somewhat equivalent, these plans are not equal.
Payroll Tax
Eugene and Springfield firefighters assigned to Eugene Fire Stations are subject to
the city’s payroll tax whereas personnel assigned to Springfield stations are not.
Network Configuration
The different network configurations across Eugene and Springfield create
challenges for ESF employees accessing resources of the city they are not
employed by.
Resource Inequities
There are disparities in resources available to employees in each city.
Strategic Analysis of Options
IN PROGRESS
This section considers the information received through stakeholder
interviews and analyzes the existing conditions in the organization to
consider the following options:
Continue serving the community as currently organized
Establishing an IGA that allows one city to provide service to the other
Establishing an IGA to create an Intergovernmental Entity (IGE)
Establishing a Fire District
Dissolving the current agreement and returning to individual departments
The AP Triton team is finding good sustainable options in this analysis that will
alleviate many of the challenges with the current model. More information will be
available as the analysis is finalized and the report is completed.
21
22
Attachment 1
Page 11 of 13
ESF Feasibility Study Update February 2024
12
Recommendations
IN PROGRESS
Triton will provide recommendations for sustainable Fire and EMS
service delivery in the cities of Eugene and Springfield, along with
the financial impact and implementation considerations.
Closing
•Eugene, Springfield, and ESF staff have been fully engaged as we
conduct the analysis.
•The level and depth of service provided to both Cities by ESF is
exceptional.
•There has been significant work to address challenges, however,
there are persistent issues for ESF and both Cities.
•As we are progressing in the analysis, we are finding good options
that could mitigate most of these challenges.
23
24
Attachment 1
Page 12 of 13
ESF Feasibility Study Update February 2024
13
VISION INNOVATION SOLUTIONS
QUESTIONS?
Feasibility Study: Administrative
Staffing and Governance Structure
25
Attachment 1
Page 13 of 13