AGENDA ITEM #1
ROSS VALLEY FIRE DEPARTMENT
STAFF REPORT
For the meeting of February 15, 2023
To: Fairfax Town Council
From: Jason Weber, Fire Chief
Subject: Presentation of the results from the Governance and Leadership Study
RECOMMENDATION
Receive the report and presentation from Local Motion Solutions on options surrounding future governance and leadership of the Ross Valley Fire Department. Discuss options and provide direction to the Town’s representatives on the Ross Valley Fire Board regarding recommended future governance and leadership of the RVFD.
BACKGROUND/DISCUSSION
The Ross Valley Fire Department (RVFD) is a consolidated department protecting lives, property, and the environments of Ross, San Anselmo, Sleepy Hollow, and Fairfax. The Department’s history can be traced to the early 1900s, starting with the formation of small volunteer fire departments in the newly formed towns of Ross, San Anselmo, and Fairfax. Built near the wildfire-prone slopes of Mount Tamalpais, these communities were and continue to be acutely aware of the risk of fire.
In 1982, the Fairfax Fire Department and the San Anselmo Fire Department joined forces and became the Ross Valley Fire Services. At the time, Sleepy Hollow was receiving fire protection from the Town of San Anselmo through a service contract. Sleepy Hollow chose not to become a Joint Powers Authority (JPA) member while maintaining a non-voting seat on the Board. In 2010, the JPA expanded to make Sleepy Hollow a full JPA member, ending its contract for service with the Town of San Anselmo.
In 2012, Ross Valley Fire Department’s Board of Directors voted to consolidate fire services with the Town of Ross, incorporating the Town of Ross Fire Station 18 into the Ross Valley Fire Department. Therefore, the current aggregate population of the Department’s service area is estimated to be 24,785, served from four (4) fire stations with nine (9) suppression personnel on duty daily.
In 2015, RVFD outsourced financial services to the Town of San Anselmo to provide accounting services such as account receivables (AR), account payables (AP), payroll, and other general finance services. In August 2018, the RVFD entered into a Memorandum of Understanding (MOU) with Marin County Fire Department (MCFD) to provide administrative and executive 2 services. However, the MOU between RVFD and MCFD terminates on June 30, 2023.
The Ross Valley Fire Department has used the services provided by MCFD as outlined in the MOU for “Fire Chief” and other command/leadership since August of 2018. However, the MOU won’t be renewed. Instead, the department is using the opportunity to review options for a path forward for governance and leadership, ensuring the long-term sustainability of Fire and Emergency Services.
The department is seeking options for the succession of the MOU, which could include multiple scenarios that require research and, ultimately, policy options to be presented to the RVFD Fire Board. Therefore, the RVFD proposes a phased approach to gather information, compile and narrow options, and present to the RVFD Board several policy considerations.
The RVFD released a request for proposal after the May Fire Board meeting, soliciting a contractor to complete a leadership and governance study. RVFD received three proposals from well-qualified vendors to complete the study. The RVFD Management Team including a member of the Sleepy Hollow Fire District reviewed the three proposals. The Fire Board selected Local Motion Solutions (LMS) to complete the “Governance and Leadership” study. The attached draft report from LMS and accompanying presentation provides the Council the opportunity to review different options for future department leadership and governance.
The Ross Valley Fire Board received a presentation of the results of the governance and leadership study at their meeting on January 11, 2023.
There are similar presentations and discussions planned with the other member agencies of the Ross Valley Fire Department. It is the goal of staff to make a determination regarding the next steps for governance and leadership of the Ross Valley Fire Department at the March meeting of the Fire Board.
Staff recommends that the Council receive the report and provide direction to the Town’s representatives to the Ross Valley Fire Board regarding recommended future governance and leadership of the RVFD.
FISCAL IMPACT
The receipt of this staff report and Local Motion Solutions presentation has no direct fiscal impact.
ATTACHMENTS
1. Draft report from Local Motion Solutions for Governance and Leadership study
2. Marin County Fire Department MOU for Fire Chief
Ross Valley Fire Department
Future Governance and Leadership
January 24, 2023
ITEM 3 - ATTACHMENT 1 ITEM 3 - ATTACHMENT 1
Ross Valley Fire Department Future Governance and Leadership 2 Contents Page
Overview 3
History of Ross Valley Fire Department 4
Management Leadership 5
Summary of Scope of Work 6
Executive Summary 6
Revenue and Future Expenses 7
Governance vs Leadership 8
Overview of Options
Independent Fire District 10
Dependent Fire District 12
Joint Powers Agreement 14
Joint Powers Authority 18
Contract for Service 19
Stand Alone Agency 21
Next Steps 22
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Ross Valley Fire Department Future Governance and Leadership 3 Overview
This report was developed to assist the Ross Valley Fire Department (RVFD) in evaluating options for managing the agency. This was brought about by the expiration of the contract for services with the Marin County Fire Department. Because Marin County Fire Department has chosen not to renew the contract for services with Ross Valley Fire Department, the Board needs to develop a plan for the management of the agency going forward.
RVFD has requested that Local Motion Solutions provide pros and cons, and other considerations of six potential management solutions for the future.
It should be noted that some of the options may not be implemented by the time the contract with Marin County Fire Department expires. This may require the RVFD to explore short-term options as a bridge to get to the desired model. The MOU for administrative and executive services with the Marin County Fire Department terminates on July 1, 2023.
Although the Ross Valley Fire Department Board had requested the pros and cons of each of the different options, not all the options are mutually exclusive. As an example, RVFD may opt to go with a District model but at the same time rehire a Fire Chief and move forward with a stand-alone Fire Department. Another option is to opt for the district model but choose to enter a Joint Powers Authority.
The Board really has two separate actions that it needs to make in its effort to move forward. The first is determining which governance model to pursue. Because the Ross Valley Fire Department serves four different agencies, there are basically two options, a district or a Joint Powers Authority. Each of these is discussed in greater detail later in this report.
The second is to determine how to manage fire services. This can be a contract for services, Joint Powers Agreement, Joint Powers Authority, or returning to a stand-alone fire chief model. Each of these options is discussed in greater detail later in this report.
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Ross Valley Fire Department Future Governance and Leadership 4 History of the Ross Valley Fire Department
Historically, the towns of Fairfax, Ross, and San Anselmo each had their own stand-alone fire department. The Sleepy Hollow Fire Protection District (SHPFD) formed in 1949 and had a long-standing contract with the Town of San Anselmo for fire protection services. The Town of San Anselmo and the Town of Fairfax merged their two departments in 1982 into a joint powers agency, creating the Ross Valley Fire Department. Prior to the JPA, each agency had its own fire chief. The new agency would operate under a single fire chief. Service to Sleepy Hollow continued under the contract with the Town of San Anselmo. In 2010, the JPA was expanded to make SHPFD a full member of the JPA, ending its contract for service with the Town of San Anselmo. In 2012, the Town of Ross, which had been under contract with the Ross Valley Fire Department for Battalion Chief staffing coverage, became a member agency of the Ross Valley Fire Department Joint Powers Agreement.
The Ross Valley Fire Department is governed by an eight-member board that is comprised of two designees from each of the four participating agencies. The Town Councils of Fairfax, San Anselmo, Ross, and the Sleepy Hollow Fire Protection District Board of Directors annually designate two voting members to sit on the RVFD Board.
Additionally, each entity has an alternate designated to serve in his/her place in the event of a scheduling conflict.
The RVFD Board of Directors oversees policy adoption, approving an annual budget, and setting fees for services, among other things. Any of the following changes requires a unanimous vote of the full board; Changes in the member agency’s cost-sharing percentage, revision of the adopted budget that results in an increase in the annual member’s contribution, any change to fire station service levels, or approval of any single expenditure in excess of 3%.
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Ross Valley Fire Department Future Governance and Leadership 5 Management Leadership
RVFD receives administrative oversight from an Executive Officer (currently the Town Manager of San Anselmo). The Executive position is appointed by the Town Managers of Fairfax, San Anselmo, and Ross. The Board of Directors appoints a Fire Chief for operational oversight. The Fire Chief reports to the Board through the Executive Officer.
The current Fire Chief is the Marin County Fire Chief, whose services are currently rendered through a memorandum of understanding (MOU) with the Marin County Fire Department (MCFD).
The MOU also provides the Department with the services (when necessary) of the Deputy Chief-Operations, Deputy Director of Fire, Fire Marshal, Battalion Chief-Wildfire Protection, Battalion Chief (Training), Battalion Chief (EMS), Administrative Services Manager, Administrative Services Associate, and other MCFD staff as determined necessary by the MCFD.
Under this shared services agreement, RVFD pays 30% of the total cost of the Fire Chief's services to the MCFD, as well as varying lesser percentages for the other previously mentioned positions.
Other services provided to RVFD by MCFD include management and oversight for financial services and administration, managing human resource functions, providing management and general oversight of the Department's community risk reduction programs, providing management and general oversight of the Department's Emergency Medical Services (EMS) program, and providing general coordination of the Department's training program.
The current staffing level is 33 Full-Time Equivalent (FTE) employees. The MOU for administrative and executive services with the Marin County Fire Department terminates on July 1, 2023.
The RVFD is seeking options for a succession of the MOU which could include multiple scenarios that require research and ultimately policy options, to be presented to the RVFD Fire Board. The RVFD is proposing a phased approach to gather information, compile and narrow options, and present RVFD Board with several policy considerations.
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Ross Valley Fire Department Future Governance and Leadership 6 Summary Of Scope of Work
Ross Valley Fire Department appointed Local Motion Solutions, LLC to conduct a fire and emergency services Governance study to include a high-level assessment of:
1. The existing emergency service levels.
2. The service delivery cost-effectiveness of the six broad approaches to organizing the delivery of fire services and a discussion of the appropriate governance arrangements as alternatives to the present situation:
a. Independent District
b. Dependent District
c. Contract For Services
d. Joint Powers Agreement
e. Joint Powers Authority
f. Stand Alone Fire Department
3. A gap analysis to determine where the existing revenue structure can or cannot support the existing and improved service levels and a summary discussion of available fiscal approaches to closing the fiscal gap.
4. The study was designed to provide options for the parties to consider that will most effectively organize the delivery of fire services and achieve the following objectives:
a. Stabilize existing services.
b. Maintain what is working well.
c. Expand partnerships to gain economies of scale.
d. Broadly identify the next steps depending on the policy options chosen.
Executive Summary
It is important to note there are no mandatory federal or state regulations directing the level of fire service a department must provide. What is required is that the Ross Valley Fire Department Board provide fire services with the safety of the firefighters and community as its primary objective. Given this requirement, the Ross Valley Fire Department is now charged to choose a Governance model that meets the goal to staff, train, and equip an effective fire service across four neighboring communities.
Local Motion Solutions finds the costs associated with providing fire services are only rising. The challenges to sustain small Fire Departments are not exclusive to the Ross Valley Fire Department, as it is a challenge most small fire departments are facing statewide. The goals are similar, and that is providing the highest level of fire services based on the financial resources available. Each of the four agencies needs to balance the competing needs of the community with limited financial resources against the fire threat faced year-round.
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Ross Valley Fire Department Future Governance and Leadership 7 Revenue and Future Expenses
The current revenue structure
should be reviewed as long-range
planning continues. The Board is
working towards staffing each of
the engine companies, so that
there are three firefighters on
every engine vs the current
staffing level of two.
This increase staffing level comes
with ongoing expenses. Some of
the expense will be absorbed by
the closure of Station #18 in Ross. It is clear, that additional sources of revenue are needed to assure the firefighters are working in safe and operational effective facilities.
There is also a need to address the immediate upgrades to bring the Fire Stations into code and equipped with modern living facilities. Long-range funding needs to be explored to address significant remodeling of the three Fire Stations, each with different upgrades needed at Stations #19, #20, and #21.
The overall General Fund Budget for Ross Valley Fire Department as budget at projected in 2021-22 is $12,058,636 and the cost allocation per the four agencies is as follows:
Total Budget Allocation Per Agency FY 2021-22:
Agency Fire Budget % of Allocation
San Anselmo $3,739,735 40.53%
Town of Ross $2,183,012 23.37%
Town of Fairfax $2,149,921 23.30%
Sleepy Hollow $1,181,073 12.80%
Total $9,253,741 100%
Marin County Fire Administrative Budget & Allocation Per Agency:
Agency Fire Budget % of Allocation
San Anselmo $132,865 40.53%
Town of Ross $76,611 23.37%
Town of Fairfax $76,381 23.30%
Sleepy Hollow $41,961 12.80%
Total $327,818 100%
Governance vs Leadership/Management
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Ross Valley Fire Department Future Governance and Leadership 8 In addition to the normal challenges of providing fire services, the Ross Valley Fire Department must now navigate the transition of separating from the leadership of Marin County Fire and moving to a new leadership structure by July 1, 2023. Local Motion Solutions evaluated all aspects of the six governance options. All options are presented with pros and cons.
It is important to understand that not all options are mutually exclusive. As an example, the Department may opt to go with a district model and opt for a stand-alone Fire Chief model. It may also remain a Joint Powers Authority and enter into a Joint Powers Agreement with other agencies. As a result, the Board has two separate decisions:
Governance
How is it funded and managed politically?
Independent District
Dependent District
Joint Powers Authority (current agencies)
Joint Powers Authority (additional agencies)
Leadership/Management
How is it managed, led, and organized?
Contract for Service
Joint Powers Agreement (shared Services)
Joint Powers Authority (additional agencies)
Stand Alone Fire Agency
It should be noted that some of the options may not be implemented by the time the contract with Marin County Fire Department expires. This may require the RVFD to explore short-term options as a bridge to get to the desired model.
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Ross Valley Fire Department Future Governance and Leadership 9 In this report, Local Motion Solutions is highlighting what we believe to be the first step in a multi-step process.
Fire Services Governance
There are two fundamental governance models. The first is the creation of or annexation into a single district with a single board of directors. As shared in more detail below this could be with either an Independent District or a Dependent District. This is the most stable form of governance but, not as common because the Town Councils of separate municipalities prefer their communities to maintain local fiscal and policy control. This could be with either an Independent District or a Dependent District.
The second model is a Joint Powers Authority. When local government agencies seek to provide consolidated services and yet want to retain a greater measure of fiscal and operational oversight than a single enlarged district would allow, they usually turn to the creation of a Joint Powers Authority.
Joint Powers Authority vs Special District
Joint Powers Authority Special District
Legal Authority: Section 6500 of the
California Government
Code
Cortese-Knox-Hertzberg
Local Government
Reorganization Act of 2000
(Act)
Formation: Joint exercise of powers
agreements
LAFCO approval and
Board/Council or voter
approval
Governance: Determined by the JPA’s
member agencies
Governing board
(elected/appointed)
Services: Any common powers Only what state law allows
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Ross Valley Fire Department Future Governance and Leadership 10 Explanation of Each Governance and Leadership Option
Independent District
The Cortese-Knox-Hertzberg Local Government Reorganization Act of 2000 (Act) establishes procedures for local government changes of organization, including city incorporations, annexations to a city or special district, and city and special district consolidations.
An Independent Fire District is a financially and politically separate government agency. "District" or "special district" are synonymous and mean an agency of the state, formed pursuant to general law or special act, for the local performance of governmental or proprietary functions within limited boundaries and in areas outside district boundaries when authorized by the commission pursuant to Section 56133 of Reorganization Act of 2000.
A fire district board may be elected “at large” or elected to represent a geographical area.
Examples of independent fire districts in Marin
Fire District Area Served
Kentfield Fire Protection District Kentfield and unincorporated Greenbrae Novato Fire Protection District City of Novato and surrounding unincorporated areas (Ignacio, Black Point,
Green Point, Bel Marin Keys, Atherton)
Southern Marin Fire Protection District
City of Sausalito, ¼ Town of Tiburon,
Unincorporated area surrounding Mill Valley
(Tamalpais Valley, Almonte, Homestead
Valley, Alto, Strawberry)
Marin Headlands, Fort Cronkhite, Fort Baker,
Fort Berry by contract with NPS
*There is currently an application to LAFCO
for the annexation of the City of Mill Valley
into the District
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Ross Valley Fire Department Future Governance and Leadership 11 Independent District - Two Options
There are two options for an independent district model for Ross Valley. The first is the creation of a completely new district.
The second option is to use the existing Sleepy Hollow Fire Protection District as the base agency and for each Town to be annexed into the existing District. Either option would require an application to Marin LAFCO (Local Agency Formation Commission).
To create a Ross Valley Fire District, each town council would have to vote to move forward with the application process for the formation of a new district or to be annexed into the Sleepy Hollow Fire Protection District.
While not optimal, it is possible to create a district without all the current members of the RVFD being in the new district. This would require renegotiation and rewriting of the existing JPA. This would have to include a plan for dealing with retirement liabilities and OPEB (Other Post-retirement Employee Benefits).
The expansion or creation of any district would have to be approved by LAFCO. The application to LAFCO can be a lengthy process and would likely not be concluded by the end date of the contract with the Marin County Fire Department. The application would include a pre-application meeting with LAFCO to discuss the process and required components of the application. The process would include the application itself, plan for services, legal boundary description, potentially GIS data, CEQA compliance (likely to be CEQA exempt), fiscal impact report, illustrative maps, a sphere of influence amendment, and application fees.
The plan for services would have to include how the new district would be funded. The only realistic option would be a tax transfer from the existing towns to the new fire district. The amount of the tax-transfer would be approximately the current cost borne by the agencies.
Towns would no longer be responsible for fire protection.
Pros
The ability of the Fire District to address its own responsibilities and remain autonomous.
Elected representatives make up the Board of Directors. Budget is independent and no longer part of the Town budgets. Property Tax shift is negotiated.
Current “islands” in the Ross Valley Area could be included. Future cost is no longer a strain on the Town budgets.
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Ross Valley Fire Department Future Governance and Leadership 12 Cons
Lack of Town Council Oversight (loss of local control). The shift of Property Tax (most stable Town revenue). Disconnected from individual Town services.
Focus on the creation of a district may distract from the pursuit of other models that may provide a greater immediate financial benefit.
Cost
The cost for a dependent district is directly tied to the type of leadership Model that the future RVFD employs.
Given a specific leadership model, the cost to maintain the current governance versus a district will likely be very similar.
Dependent Fire District
A dependent fire district is financially separate but politically subservient.
A dependent special district includes any special district that has a legislative body that consists, in whole or part, of ex officio members who are officers of a county or another local agency.
All the same laws (Cortese-Knox-Hertzberg Local Government Reorganization Act of 2000) apply to a dependent district, just as an independent district.
The creation of a dependent district would also follow the same LAFCO procedure.
Dependent District – Examples of Dependent Districts in Marin District Area Served/Board Makeup
Marin/Sonoma Mosquito Abatement District
Marin County, Sonoma County, every city or
town in Marin or Sonoma Counties.
Supervisors and town/city council members
Golden Gate Bridge District
San Francisco, Marin County, Sonoma
County, Napa County, Mendocino County,
and Del Norte County. Combination of Board
of Supervisors and Appointees.
Marin County Open Space District
Marin County Board of Supervisors serves as
the MCOSD Board.
CSA 19 (Unincorporated islands, San Rafael) Marin County Board of Supervisors CSA 31 (Unincorporated islands, Marin) Marin County Board of Supervisors ITEM 3 - ATTACHMENT 1
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Ross Valley Fire Department Future Governance and Leadership 13 There are no dependent districts in Marin that are true fire agencies. There are two County Service Areas that provide funding to existing fire agencies.
The process for creating a dependent district is the same as in an independent district, A plan for services would have to include how the new district would be funded. Again, the only realistic option would be a tax transfer from the existing towns to the new fire district. The amount of the tax-transfer would be approximately the current cost borne by the agencies.
The District Board would be appointed by the individual agencies.
Fire examples: Contra Costa County Fire, Alameda County Fire, Santa Clara County Fire, and South Santa Clara County Fire.
Pros
Ability of the Fire District to address its own responsibilities and remain autonomous.
Elected representatives make up the Board of Directors. Budget is independent and no longer part of the Town budgets. Property Tax shift is negotiated.
Current “islands” in the Ross Valley Area could be included. Future cost is no longer a strain on the Town budgets. Council appoints Board representatives.
Cons
Board focus is not independent of the individual agencies. The shift of Property Tax (most stable Town revenue). Disconnected from individual Town Services.
Focus on the creation of a district may distract from the pursuit of other models that may provide a greater immediate financial benefit.
Cost
The cost for a dependent district is directly tied to the type of leadership Model that the future RVFD employs.
Given a specific leadership model, the cost to maintain the current governance versus a district will likely be very similar.
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Ross Valley Fire Department Future Governance and Leadership 14 JPAs - Joint Powers Agreements or Joint Powers Authority Section 6500 of the California Government Code allows public agencies to enter into joint powers agreements and joint powers authorities.
Joint Powers Agreement
A Joint powers agreement consists of two or more agencies sharing or exercising common powers. Each agency continues to maintain independence for providing the service. Employees continue to work for the original agency. This should not be confused with a joint powers authority, such as the Ross Valley Fire Department.
Joint powers agreements may also be referred to as simply shared services or a shared services agreement. This enables agencies to share any services that both can provide legally. This allows the agencies to utilize personnel or resources to greater advantage by eliminating duplication of services.
This differs from a contract for service in that both agencies put resources or services into the agreement. As an example, one agency may put in management services while another agency puts in battalion chief coverage. It's up to the two agencies to determine what is fair and equitable between them. Sometimes it may also involve payment to cover an imbalance in resources put into the joint powers agreement. Examples of this are many and varied throughout Marin (see below).
One of the difficulties in shared services agreements or joint powers agreements is that there is not a single governing body overseeing the provision of service. Direction often relies on a committee with limited authority or ad hoc agreements between the two agencies. Over time, these understandings between the two agencies can drift or change. Because the agencies are separate, it can be difficult to focus on long-range planning and long-range capital outlay. Each agency still maintains its own budget, employees, and policies. Because employees work for separate agencies, there may be misunderstandings about the chain of authority, priorities, allegiances, and the mission of the organization. This can lead to difficulties with employee discipline, collective bargaining, working conditions, and benefits.
Joint powers agreements are good for sharing a single service or function within an organization, or as a bridge to get to another governance model, such as annexation, a full contract for service, or a joint powers authority. Joint powers agreements should not be used as a permanent replacement for any of those.
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Ross Valley Fire Department Future Governance and Leadership 15 Examples of Joint Powers Agreements in Marin
Agencies Services Shared
Southern Marin fire protection District
City of Mill Valley
Currently, the SMFPD and the MVFD operate
a single fire department under a Joint Powers
Agreement.
As noted earlier in this report, the City of Mill
Valley and the Southern Marin Fire Protection
District currently have an application with
LAFCO for the annexation of the City of Mill
Valley into the Fire District.
Central Marin Fire Authority
Kentfield Fire Protection District
The CMFA and the KFPD share battalion
Chief coverage for the two service areas with
CMFA covering two shifts and KFPD covering
one shift.
City of San Rafael
Marinwood Community Services District
(Marinwood Fire Department)
SRFD and MCSD share initial response
resources with Marinwood providing first-due
response to city areas and San Rafael
providing Battalion Chief Coverage.
*Under separate agreements, San Rafael
provides a Fire Chief and Fire Prevention
services.
Joint Powers Agreements
Pros
Joint Powers Agreements are flexible and easy to form. Joint Powers Agreements are effective for sharing limited services or as a bridge to get to a more permanent agreement.
Any government agency can participate in a Joint Powers Agreement. Member agencies may negotiate their levels of commitment. It allows agencies to essentially trade services or resources. It's up to the agencies to determine what is fair and equitable between them. Sometimes it may also involve payment to cover an imbalance in resources put into the Joint Powers Agreement.
Joint Powers Agreements may be canceled without significant unwinding.
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Ross Valley Fire Department Future Governance and Leadership 16 Joint Powers Agreements
Cons
There is not a single governing body overseeing the provision of service. Direction often relies on a committee with limited authority or ad hoc agreements between agencies.
Over time, understandings between the two agencies can drift or change. Each agency still maintains its own budget, employees, and policies. Because the agencies are separate, it can be difficult to focus on long-range planning and long-range capital outlay.
Because employees work for separate agencies, there may be misunderstandings about the chain of authority, priorities, allegiances, or the mission of the organization. This can lead to difficulties with employee discipline, collective bargaining, working conditions, and benefits Central Marin Fire
Central Marin Fire has expressed interest in a joint powers agreement as a potential bridge to a joint powers authority. No other agency expressed an interest in participating in a joint powers agreement.
A joint powers agreement or authority with Central Marin Fire presents the only opportunity which is either cost-neutral or a potential opportunity for savings.
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Ross Valley Fire Department Future Governance and Leadership 17 Central Marin Fire and Ross Valley Fire are similar agencies, both agencies are joint powers authorities serving small municipalities. Each agency has four stations and a similar management structure.
We have worked with the management staff of Ross Valley Fire and Central Marin Fire to create a possible organizational structure and potential cost for the structure.
It should be noted that this is a hypothetical structure and costs represent a high-level look at potential costs.
Current Staffing RVFD and CMFD vs Potential Staffing of a Combined Agency *Currently CMFD participates in a JPA with Kentfield Fire for a Shift Battalion Chief. Whether this makes sense in the long-term should be evaluated. Admin B/Cs would include a Training Officer, Fire Marshall, and possibly an EMS Officer.
Cost
Because the proposed organizational structure uses existing personnel reassigned to eliminate duplication and focus on more strategic needs, the cost would likely be approximately or possibly slightly less than the current cost.
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Ross Valley Fire Department Future Governance and Leadership 18 Joint Powers Authority or Agency
A joint powers authority is distinct from the member authorities; they have separate operating boards of directors. These boards can be given any of the powers inherent in all the participating agencies. The authorizing agreement states the powers the new authority will be allowed to exercise. The term, membership, and standing orders of the board of the authority must also be specified. The joint authority may employ staff and establish policies independently of the constituent authorities.
A joint powers agency or joint powers authority (JPA) is a new, separate government organization created by the member agencies, but is legally independent from them.
Like a joint powers agreement (in which one agency administers the terms of the agreement), a joint powers agency shares powers common to the member agencies, and those powers are outlined in the joint powers agreement.
Joint powers authorities receive existing powers from the creating government agencies.
Examples of Joint Powers Authorities or Agencies in Marin Agency Area Served
Ross Valley Fire Department Town of Fairfax, Town of Ross, Town of San Anselmo, and Sleepy Hollow Fire Protection
District
Central Marin Fire Authority Town of Corte Madera and City of Larkspur Central Marin Police Authority Town of Corte Madera, City of Larkspur and Town of San Anselmo
The Joint Powers Authority model with Central Marin Fire presents an opportunity which is either cost neutral or possibly presents an opportunity for savings. We have worked with the management staff of Ross Valley Fire and Central Marin Fire to create a possible organizational structure and potential cost for the structure. It should be noted that this is a hypothetical structure and costs represent a high level estimate of the anticipated costs.
Pros
Joint Powers Authorities are flexible.
A Joint Powers authority may be more efficient than separate governments. Joint Powers Authorities allow local agencies to join forces and tackle issues together.
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Ross Valley Fire Department Future Governance and Leadership 19 A Joint Powers Authority can use the personnel, expertise, equipment, and property of each agency, promoting economy and efficiency. A Joint Powers Authority can work on regional solutions.
Cons
It is unlikely that a Joint Powers Authority could be completed before the termination of the contract with MCFD.
A Joint Powers Authority requires that all employee benefits be brought into alignment.
All employees must be transferred to the new agency.
Cost-sharing formulas need to account for existing unfunded retirement liabilities and OPEB (Other Post-Employment Benefits).
Joint Powers Authorities can be difficult to unwind (unfunded retirement liabilities and OPEB).
Larger Joint Powers Authorities may have a large Board of Directors. Because Directors represent individual agencies, Board focus may not be independent of the Cities and Towns
Cost
Because the proposed organizational structure uses existing personnel reassigned to eliminate duplication and focus on more strategic needs, the cost would likely be approximately or possibly slightly less than the current cost.
Contract for Service
A contract for service is one agency paying another to provide a service or a portion of service.
Contracts can be for management services, fire prevention, shift battalion chief coverage, or for the provision of all emergency response.
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Ross Valley Fire Department Future Governance and Leadership 20 Contracts for Service Examples
Pros
Quick to initiate, good short-term solution.
Can be easy to negotiate.
Focused contract responsibilities.
Cost-effective.
Can provide experienced leadership.
Cons
The contract agency may not get the same level of attention as the contractor agency.
It may place heavier or competing workloads on contractor employees. Expectations may not always be clear.
Lines of authority are not always clear.
The contractor may have to hire additional personnel to meet expectations (this creates long-term obligations).
Costs may be more volatile.
Not always a long-term solution.
Contract for Service - Possibilities
Unfortunately, none of the surrounding agencies were interested in pursuing a contract for services for overhead. This included providing a fire chief or a deputy chief acting as the primary administrator for Ross Valley.
Marin County did express an interest in a contract for providing all fire services in a longterm contract (all employees under the County contract).
Because of differences in compensation packages, the increased cost to Ross Valley would likely be in excess of $1 million.
A full contract for service polled very unfavorably with Board and Council members.
LMS did not pursue this option in detail.
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Ross Valley Fire Department Future Governance and Leadership 21 Stand Alone model – Hire Fire Chief and Management Team Ross Valley Fire Department historically has had a single fire chief who oversaw administration, operations, and fire prevention.
The fire service has become more complex with greater demands placed on fire service managers. Most modern fire agencies of Ross Valley’s size have separate managers assigned to these three functions.
Fire service leaders who are overworked cannot provide mentorship and leadership for their agencies. Mentorship programs are essential in building future fire service leaders.
Ross Valley would likely have to hire/promote not only a fire chief but likely a deputy chief and possibly a fire marshal.
Pros
Maintains local control.
Ross Valley Fire Department would be the chief’s sole focus. Simple and maintains the status quo.
Cons
Will increase costs.
A small pool of candidates internally.
Hiring from the outside can bring unknown qualities.
Duplicates services of adjacent agencies
Cost
The cost to return to a stand-alone fire chief model will be dependent on the management structure employed. Below is an estimate of the likely costs.
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Ross Valley Fire Department Future Governance and Leadership 22 Next Steps
This report summarizes a high-level overview of each of the options available to the Ross Valley Fire Department.
It is recommended that Town Council members review the staff report, receive this report, ask questions of the Fire Chief and/or the consultant sregarding the options presented and provide direction to the Town's representatives on the Ross Valley Fire Department Board of Directors ITEM 3 - ATTACHMENT 1
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