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HomeMy WebLinkAbout19-City Manager --- CITY OF SAN BERNARDINO - REQUEST FOR COUNCIL ACTION From: Charles McNeely, City Manager Subject: Fire Department Reorganization Dept: City Manager's Office Date: July 16,2009 MCIC Meeting Date: July 20, 2009 Synopsis of Previous Council Action: 7/1412009 - Heard by the Personnel Committee RECOMMENDATION: Personnel Commillee Recommendation: Keep the Fire Department's Management staffing as is and direct the Fire Department to generate additional revenue of $254,200 (FY 09/1 0) through compliance enforcement and use the additional revenue to reinstate Firefighter positions. OR Staff Recommendation: Implement the Fire Department Reorganization plan as outlined in Attachment A and use the savings to balance the FY09/1O budget as proposed in the budget workshops. sJ;: (3,-k J- Crv~ Contact Person: Teri Baker/Mat Fratus Phone: x5l22 or x5286 Supporting data attached: Staff Reoort. 7-7-09 (Attachment A) & 7/14/09 (Attachment B) Personnel Committee reoorts. FD Organizational Chart Ward: Citywide FUNDING REQUIREMENTS: Amount: Aporoximatelv $254.200 savings OR revenue in FY 09/1 0 Source: (Account No.) 001-202-50XX (Acct Descriotion) Emergencv Ooerations Personnel Services Finance: Council Notes: Agcnda Itcm No. I &f 1- ~o'oq- --- - CITY OF SAN BERNARDINO - REOUEST FOR COUNCIL ACTION STAFF REPORT Subiect: Fire Department Management Reorganization Background: On March 31, 2009, the Interim City Manager directed all department heads to begin preparing additional budget reduction scenarios to address a continuing budget shortfall. In response, the Fire Chief proposed a reorganization of the Fire Department's management staff that would result in a savings of approximately $254,000 for FY 2009/10. This proposal was submitted to the City's Personnel Committee on July 7, 2009 (Attachment A). During that meeting, the Committee asked for additional information and an exploration of other specific management staffing configurations to determine if similar savings could be achieved through another approach. The Committee also asked staff to evaluate the potential for increasing revenue through a more aggressive use of Administrative Civil Penalties (ACPs). A written response was provided by the Fire Chief and reviewed at the Personnel Committee meeting held on July 14, 2009 (Attachment B). This document evaluated other options for reconfiguring management, but the Fire Chief noted that each option posed operational and safety concerns, and ultimately did not save as much as his original configuration. Therefore, the Chiefs final recommendation to the committee was to adopt his original reorganization plan as submitted on July 7, 2009. After discussing the information provided by the Fire Chief along with additional input from the City Manager regarding ACPs, the Personnel Committee voted during the July 14,2009 meeting to reject the Fire Chiefs proposal and recommendations. The effect of this motion is that approximately $254,200 in savings for FY 2009/10 and approximately $279,000 in subsequent years will not be realized. The Personnel Committee motion also called for the Fire Department to generate additional revenue through increased compliance enforcement/increased penalty amounts for fire code violations. The additional projected revenue from these penalties would specifically be used to reinstate firefighter positions that were eliminated as part of the City's budget reduction strategy on FY08/09. The City Manager respects the Committee's position on these issues. However, in light of the current financial conditions facing the City, it is imperative that the City take advantage of cost reduction strategies such as those recommended by the Fire Chief. Furthermore, the City Manager's office requests additional time for staff to evaluate the ACP process to ensure that it is being administered uniformly across the city, and to give closer analysis to the community impact and revenue generating potential of using this mechanism before increasing the revenue projections. Financial Impact Implementation of the Personnel Committee's recommendation would increase revenue by $254,200 (to be generated by the Fire Department) through more aggressive use of penalties for fire code violations, and allow for the reinstatement of up to 2 Firefighter positions. Alternative budget saving measures would have to be developed to balance the FY09/10 budget, since $223,000 of expenditure savings from the proposed reorganization of Fire Management has been proposed to help balance the budget. Implementation of the Fire Chiefs Management reorganization proposal would result in a savings of approximately $254,200 for FY 2009/10, and an annual savings in subsequent years of approximately $279,000. Rccommendation: Personnel Committee Recommendation: Keep the Fire Department's Management staffing as is and direct the Fire Department to generate additional revenue of $254,200 (FY 09/1 0) through compliance enforcement and use the additional revenue to reinstate Firefighter positions. OR Staff Recommendation: Implement the Fire Department Reorganization plan as outlined in Attachment A and use the savings to balance the FY09/10 budget as proposed in the budget workshops. , \ /};f-acA 111-VPC 14 CITY OF SAN BERNARDINO - REQUEST FOR COUNCIL ACTION From: Linn Livingston, Human Resources Subject: FIRE DEPARTMENT MANAGEMENT REORGANIZATION Dept: Fire Department Date: July 7,2009 MICC Meeting Date: July 20,2009 Synopsis of Previous Council Action: Recommended Motions: 1. Authorize the working title of Administrative Battalion Chief and establish a 9% education incentive for Administrative Battalion Chief. 2. Assign the working title of Administrative Battalion ChieflTraining Officer to the Training Officer position. 3. Assign the working title of Administrative Battalion ChieflFire Marshall to the Fire Marshal position. 4. Assign the working title of Administrative Battalion Chief to two of the Battalion Chief positions. 5. Delete one (1) Battalion Chief (Effective 9/15109). 6. Delete funding for one (1) Administrative Captain position. 7. Authorize the Human Resources Department to update Resolution Nos. 97-244 and 2008-452. 8. Authorize the Director of Finance to incorporate the above changes' 09/10 adopted budget. Signature Contact person: Anne Alvarado Phone: 384-5161 Supporting data attached: Yes Ward: FUNDING REQUIREMENTS: Amount: _$254.200 Savinas for FY 2009-10 Source: (Acct. No.) (Acct. Description) Salary and Benefits Finance: / Council Notes: Agenda Item No. I' R'c/Jj"", O,..,.,L> ,...,-rY7 _fYl CITY OF SAN BERNARDINO - REQUEST FOR COUNCIL ACTION Staff Report Subiect: Fire Department Management Reorganization. Backl!round: As part of the Fire Department's contribution toward balancing the City's budget, the Fire Chief is proposing a reorganization of the Fire Department's management staff. This reorganization will save approximately $254,200 in FY 2009/10 and approximately $279,000 annually in subsequent years. The proposal is as follows: Delete One (J) Battalion Chief In this proposed reorganization, one (1) Battalion Chief position will be eliminated through attrition on September 15, 2009. Battalion Chiefs are critical management positions that provide the overall supervision of the Captains, maintain general continuity of operations and assume command at major emergencies. The Fire Department currently has six (6) Battalion Chiefs (P- 5's) who are assigned to 48/96 shift schedules on each of the department's three (3) shifts (two Battalion Chiefs per shift). Through the current configuration, the department maintains a minimum of two (2) chief officers on-duty 24 hours per day, 365 days per year. Although deletion of a Battalion Chief is proposed, as discussed below, other elements of the proposed reorganization will help to reduce the impact ofthis loss. Assilm the Workinl! Title of Administrative Battalion Chief to two of the Battalion Chiefoositions Three (3) of the remaining five (5) Battalion Chief positions will continue with their present duties and with 48/96 schedules. The remaining two (2) Battalion Chief positions will be assigned primarily to administrative duties, but will also perform emergency operation coordination as required. The proposed working title for the upgraded administrative chief positions is Administrative Battalion Chief (P-5). This is a standard title in the fire service for chief officers taking on responsibilities greater than those typically performed at the Battalion Chief level, but not necessarily to the level of a Deputy Chief. Two (2) other chief officer positions in the Fire Department (Training Officer and Fire Marshal) are also at the P-5 rank. These two (2) positions primarily perform administrative duties on a 40-hour work schedule. The two (2) new Administrative Battalion Chief positions and the Administrative Battalion Chie17Training Officer will be moved to a modified schedule that consists of three (3) 8-hour shifts and one (1) 24-hour shift, for a total of 48 hours per week. The 24-hour shifts will occur on weekends and holidays to ensure a minimwn of two (2) chief officers on duty 2417. If any of the administrative chief officers takes leave time on a scheduled 24-hour shift, it will require backfill overtime from another chief officer. However, leave time taken on scheduled 8-hour days will not require backfill overtime since other administrative chief officers will be available to respond to emergencies as necessary. This represents a significant savings. Compensation for the position of Administrative Battalion Chief should be at the same level as the current positions of Training Officer and Fire Marshal, as the job functions are similar. Currently, the salaries for the Training Officer and Fire Marshal are identical, and calculated through the process outlined in Section 186 of the City's Charter. Over the past 10 years, Section 186 salary surveys for the Training Officer and Fire Marshal positions have reflected an average salary of approximately 9% above the Battalion Chief position (P-S). Therefore, in recognition of the additional responsibility, knowledge, skills and the educational requirement of a Bachelors Degree, it is recommended that a 9% educational incentive be provided for the assignment of Administrative Battalion Chief. (Note: The required degree must be granted from an accredited institution and should focus on Fire Science, Business Management or a closely related field of study. Only those individuals performing Administrative Battalion Chief duties will be eligible to receive this incentive.) Upon approval of this reorganization, salaries for the positions of Training Officer, Fire Marshall, and Administrative Battalion Chief will be calculated in the same manner (Battalion Chief pay plus 9%) for consistency in the department's management structure. Delete Fundinf!. for one (J) Administrative Captain Position To achieve the potential goal of $279,000 in savings, the department will need to discontinue funding one (I) Administrative Training Captain position. The current duties of this position will be assumed by one of the newly upgraded Administrative Battalion Chiefs. The configuration of this proposed Fire Department's management reorganization will address some of the shortfalls in administrative staffing levels that the Fire Department has struggled with for some time. However, it will also create challenges in ensuring that adequate chief officer supervision is present 24/7 for emergency response and supervisory issues. With the above plan, it is believed that adjustments can be made to keep the fire management operation running efficiently until these fiscally challenging times end and the chief officer and administrative captain positions can be reinstated. The savings from this reconfiguration are equal to the cost of two (2) firefighter positions. Financial Impact: The proposed management reconfiguration will reduce current annual Fire Department personnel costs by approximately $279,000. For FY 2009/10, the savings will be approximately $254,200 due to the delay in eliminating the additional Battalion Chief position until September 15, 2009. Savings estimates include the overtime cost of covering night shifts when only one Battalion Chief is scheduled for duty. Tables I and 2 provide a breakdown of costs and the net savings. - Table 1. Annual Cost Factors Associated with Current Configuration of Chief Officers and Training Captain. Rank Annual Base Salary (Less 10% concession) Annual Benefit Cost Backfill for 24/7 coverage Number of current positions Total Training Officer $ 132,948 $ 67,752 $ 1 'iS~&'3i3~97r ,i...""'"!,,:'.'.,_:!....,...:....,.: $ 200,700 >Batt;11i0R~Ghiei,tf!~~~~'i!,1 ~Si.t2'4'~2~3,~t}~?i~~Wl.~~fi: ~~~6'if)7572:~~ ?r$?i116oe~~~:~ r~JH~)::t:~gl~~:~: e ;.o:;.,'>"tf.>i~-<W?"Y..iB~.7.:~;~:'~;1_;~'\ :~~~lk"".\;:4'Y.,(;b.['i,~)j?;;<"L~<'fj'l~ ,v,~>.:"1:.~~1'~~~~21.)g"" ~~~_>~~"'.)l~"X..->''''f,~:~ _~?i....tf~3':'"~__'!'"'~.t;h-;;;t ,.Ej'r~arsIia'P:tpl~;;!;R~t1i. ..~$r.iB~~'9'a:8~~;~~~~ t-{tc~ti3'"iff~!9~~J:~ ~~t''W~~~~~~~t -f~t.'+~'ii~~}~'r.+- ,.t~1~.1:96\"807,:~;;;':~'- :-_~:~~i~Z:;.:lt:..~~~.4't;~~,fi',~t ,;>>\~'AA;'nkf~:~:iJ}'f;it~~~<r.-*-~T~-!i: ,~)!~~~~i?~H:!l ;~~"!t$;"~!;!f* iff.li~J;i?::;-"';:;!1r:,~.,0',~:1}:t:r~~.l~::,";~",~.",._,,"- :':: Training Captain $ 103,262 $ 46,664 $ 1 $ 149,926 " $('1,861,404 - Totall?fY~~~~1fff51r;<,~~~fi.1~f :~rsi!ilif~~~~i~~~~f~~ Table 2. Annual Cost Factors Associated with New Configuration of Chief Officers. Rank Annual Base Salary (Less 10% concession) Annual Benefit Cost Backfill for 24/7 coverage Number of current positions Total ",;:,1<%'~~~\..,;~i/~,?,7~.';;:t*~~Q;:,~,~::~~;' :~?';::J:(?f;~~,~'~';i~:t$~j\~1}.ff,.Jt,;: lf~'f~?;t~tl{.:~;.~;:'1'~}~iJ'~4~~JJ; ;~~;~):.'f:~;;12~',::.?::;:~'i; Battahon'Chlef"'", ,,-,'~l' ...$.'124'2431""d;~,."~'""" "$-61"7'52 "_"'4' .,$"27000'''' ; " ." __ ,..' " .. ,,' .';"'-"-':'<_~;,: '__'" ~,,:' ,;t,_ ,_ L" ,.. _ _\:>,..,t'-~,..~:,(,:;.c,",."~';:,,,~", <_~ )-l.- ,: ',,'_. ,,!-,''-''''-,~'j,:\~ "i- " . c':, '" .. "-"., '$ ,.' 656,896 Administrative Battalion Chief $ 135,425 $ 628,131 ':!A- ),:...1''''''1' "'~~'B"';':tta""'"''>''I.,-",*\,;[",'";,,':bc::c;.;f,.<~~V.;:;',i~;f:~,-;;;~:::1J;-;;~:";;;J,,~l>&,~:;\_Ll&-:...~ '~"t;;,~;;:;~,~"" ~"":':1'-: , ~ urn n., a, 1,C)n :~~::,'!r:':z .'t;~loi".;:.: .':-;,,_'tS?tW:{~.;:...:.;?'rkJ:ti,:,,:.c,<'i\ .f';""'~11 ~'fi:?!:; 1,~.,,"OI-.,'!-'.'.7.~/V~,,'i.'t.~'''.1!iZt;:. ~~'\~'~. : ,. li. :r..'i.6$-~'.-1i{.,~~...;,.....~.;".'l...~:"}".'1~":.'>:'f. $;~~. .~tt.. ~"', :},"'$~' _"<u,1l\';;~' i(Jliij!J Jit~,J'i/I!!rsllal;;'(r';~: J' ':1~5;425~,*t~blJ<,';'f,1\i~; j, ..Jj;~;I!S.~.* Supplemental Staffing (24/7 coverage) ~:~i~~fi~1~U~;;." $ Difference in Costs Between Table 1 and Table 2 Totals (Annual Savings) I This represents the ongoing annual savings. Because the vacancy of the Battalion Chiefs position will be created through attrition in September of2009, the savings for FY 2009/10 will be reduced to $254,208. $ 279,003' Recommendations: I. Authorize the working title of Administrative Battalion Chief and establish a 9% education incentive for Administrative Battalion Chief. 2. Assign the working title of Administrative Battalion ChieflTraining Officer to the Training Officer position.. 3. Assign the working title of Administrative Battalion Chief7Fire Marshall to the Fire Marshal position. 4. Assign the working title of Administrative Battalion Chief to two of the Battalion Chief positions. S. Delete one (1) Battalion Chief(Effective 9/15/09). 6. Delete funding for one (I) Administrative Captain position. 7. Authorize the Human Resources Department to update Resolution Nos. 97-244 and 2008- 452. 8. Authorize the Director of Finance to incorporate the above changes into the FY 09/10 adopted budget. l':: o .~ N '8 '" I>ll .... o ..... l':: <1.l 81i <1.l '" ~c ~ 2- ~o.':; ..... l':: <1.l 8 1: '" 0- <1.l Cl <1.l .... l.L: ~ ~ .., on t- '" ;;; .... .... .... .... .... .... .... .... .... . . . . . 0 0 0 . 0 " " " ." 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Conrad, Fire Chief Subject: Fire Department Reorganization - Response to Personnel Committee Date: July 14, 2009 Copies: Charles McNeely, City Manager This memo is in response to the discussion that took place at the July 7, 2009 Personnel Committee Meeting regarding my proposed plan to reorganize administrative staff positions as a cost savings measure. Staff was asked to provide costing and information for an alternate reorganization as follows: . Elimination of one Administrative Training Captain . Elimination of one Battalion Chief . Reinstatement of Fire Fighter positions . Revenue generation Elimination or Administrative Traininf! Cavtain The Administrative Training Captain position was established in 2004. At that time, the department had less than half of the training staff that would be considered standard for a fire department of this size, and maintained a training budget that was approximately 15% of what comparable Cities allocated to their training. Most importantly, the department was not able to meet all ofthe training needs and requirements mandated by state and federal agencies. Although the Training Division is still not completely on par with the majority of comparable Cities in terms of staffing and budget, the additional position of Administrative Training Captain has facilitated a substantial improvement in meeting the minimum training requirements and overall needs of the department and the community. Having this full-time position allows the department to conduct training for department personnel while they are on duty, which reduces overtime costs significantly. Additionally, the position has facilitated a revenue stream for the City through the Santa Ana Community College District (SACCD) that generated over $107,000 in revenue for FY 2008/09. This amount is approximately $45,000 more than projected. This increase is a direct result of the Administrative Training Captain scheduling, organizing, and instructing additional classes on a regional level through the department. If the Administrative Training Captain position were eliminated, we would experience the same deficiencies that we did prior to creating the position. This training deficit will decrease operational effectiveness and will likely increase the City's liability should any unfavorable outcome occur during fire department operations. There will also be a negative fiscal impact by ~ eliminating this position. Revenues from SACCD will decrease as the department will lose the ability to focus on regional level training. Additionally, certain periodic training functions such as required new-employee training would necessitate additional trainers on overtime to serve as full time instructors. After taking these elements into account, the annual net savings resulting from the elimination of the Administrative Training Captain position would be $97,946 (see table I). Table 1: Savings Resulting from the Elimination of I Administrative Training Captain , Savings from the elimination of 1 Admin Training Captain '$ 149,946"i " Projected reduction in training revenue Cost for employee orientation training Total Savings -"""$ 35000" ';''''iA. 'of,'.',::,' ".".,.."" , .- . :;:$ 17,OOOi;'~' $ 97,946 Elimination of One Battalion Chief fBCi Position The city currently uses six battalion chiefs (two battalion chiefs per shift) to supervise field operations on a 24/7 basis, and perform a variety of managerial functions. One of the critical functions of the battalion chiefs is to take a command role in emergency operations. Ensuring that these incident command functions take place is required by Title 29 CFR 1920.120. Furthermore, NFPA Standard 1710 calls for a Chief Officer and an Aide (2 personnel total) to respond to the scene of emergency incidents to perform command functions. These functions include implementing the Incident Command System (ICS), coordinating incident communications, tracking the precise location and function of each person assigned to the incident, and coordinating functions of outside agencies that may be involved with the incident. Because of the complexity of these functions and because the department does not have Battalion Chief Aides, a second Battalion Chief is routinely dispatched to all incidents where multiple companies will be operating. The second Battalion Chief assists with the above functions, and often serves as the Incident Safety Officer, a position also required by OSHA and NFPA. By eliminating a BC, certain shifts would be left without this resource, which places additional burdens on the remaining BC and the frreground Captains. This environment hampers command and control functions, emergency communications, and situational awareness. Each of these elements has been identified as leading causes of firefighter fatalities and ineffective operations. Furthermore, at certain times when simultaneous incidents occur and multiple units are required, there would be no other Chief Officers on duty to respond in a timely fashion. In the non-emergency environment, each BC is responsible for the direct supervision of six fire station facilities and seven Captains. This 7: I supervisory ratio is acceptable by industry standards, although it is considered to be the maximum span of control. By eliminating a Battalion Chief without providing another mechanism for supervision or emergency scene oversight, the ratio would increase to 14: I. At such a ratio, it is not reasonable nor responsible to expect a single BC to maintain operations to the expectations of the City, its citizens, or regulatory agencies. 2 ..;.olt -- In consideration of the above issues, the effect of the reduction of one Battalion Chief position would have to be mitigated by backfiJling the vacant position with existing Battalion Chiefs. This would ensure that a minimum of two Battalion Chiefs are on duty 24/7 to address these operational needs. The annual savings realized through such a configuration would be approximately $126,248 (see table 2). Table 2: Savings Resulting from the Elimination of I Battalion Chief while providing for 24/7 Coverage. Savings from the elimination Cost of maintaining 2 Total remaining savings of 1 Battalion Chief position battalion chiefs for 24/7 coveraj(e $218995 ,"'''r.. . ., ....':'..'<':.$92747' ,'......,',. '," ' ",,"''''''''-'$'126248' I, , ,:." ',' '.~~;;~ ,-';:,.tt','.-~.. ',.'; ;' '~'.;\'. _, .;.,<;;,.,..,,;',:,:.\,1 ,~, "}" :":;{'.';~:'.",,:; ....' ,,' Collectively, eliminating the Administrative Training Captain and a Battalion Chief in this fashion would result in an annual savings of $224.194. This savings is approximately $55,000 less than the original management reconfiguration proposal. Although the above configuration does provide for BC coverage on a 24/7 basis, it does not provide an adequate mechanism for maintaining training operations as the original proposal did. Re-instatement of Firefif!hter vositions: The Committee also expressed a desire to reinstate Firefighter positions by using the savings from the elimination of the two positions listed above and from additional funding sources, The cost to fully fund one Firefighter position is $132,000; therefore savings from the elimination of the two positions ($224,194) would fund one Firefighter position, and fall approximately $40,000 short of funding a second. Administrative Civil Penalties (ACP! Prof!ram Revenue There was also a great deal of discussion concerning potential revenue in the form of Administrative Civil Penalties (ACPs) as a means to provide additional funding to the Fire Department and, perhaps, to fund the reinstatement of Firefighter positions. There was no clear direction provided to the Fire Department last fiscal year concerning the process to administer the ACP Program and specific ACP revenue expectations; therefore, further direction and clarification is needed. The department did collect $26,200 in revenue from ACPs and Administrative Citation revenue did exceed expectations by approximately $31,000 more than projected in the adopted budget. After further discussion with the City Manager regarding the Fire Department and Administrative Civil Penalties, the City Manager decided that the Administrative Citation process needs a total review. The Fire Department will be involved in this process and appropriate revenue projections will be set and a policy will be developed for the program. Eauitabilitv with Rank-and-File The Committee also expressed concerns regarding the reorganization proposal with regard to a 9% increase over base Battalion Chief pay for two additional individuals that would be placed in the new administrative Battalion Chief positions. This proposal would bring the total number of 3 administrative Battalion Chiefs to four. For over 25 years, the fire department has had a minimum of two Battalion Chiefs assigned to administrative duties, and they have received additional compensation that averages 9% above base Battalion Chief wage. The amount of this additional compensation was determined by the same process that is used to establish fire safety employee's wages through Charter Section 186. As such, it represents the average pay that employees in other fire departments receive for performing like duties. The two additional administrative Battalion Chiefs would be performing duties that are comparable to the two existing administrative Battalion Chiefs. Therefore, we believe that it is fair and appropriate to compensate them accordingly. It should also be noted that although the total number of administrative staff would be reduced from nine to seven, the amount of administrative level work that must be completed will be the same. Therefore, the administrative Battalion Chiefs would be expected to handle issues that are typically done at higher administrative levels than they deal with typically. In order to maintain 24/7 coverage for field supervision, the proposed configuration will create the need for Battalion Chiefs to work additional hours, which would be compensated at Battalion Chief straight-time rate without the 9% bonus. This concept is identical to the constant staffing method used by rank-and-file personnel to maintain 24/7 staffing. As with the rank-and-file, this approach actually costs the city less money than hiring additional personnel to fill vacant time periods. Personnel only work when needed, and do not incur additional costs for benefits. Considerations: The reorganization proposal as presented on July 7th would have generated approximately $254,200 in savings in FY 2009/10 and approximately $279,000 in FY 2010/11. This is approximately $55,000 more in FY 2010/11 than we would experience by eliminating the Administrative Training Captain position and one Battalion Chief position as outlined in this document, which would result in an annual savings of only $224,194. The 2009/10 proposed budget included $223,000 in savings from the Fire Department's reorganization to balance the budget. Should the Council decide to use the savings to reinstate Firefighter positions, an alternate funding source would have to be identified to close the gap. Based on the above information, and in the interest of operational efficiency, safety, and fiscal prudence, I recommend that the Committee support the implementation of the reorganization as proposed at the July 7, 2009 Personnel Committee meeting. 4