HomeMy WebLinkAboutCSS 2021-06-07 Item 1E - Update - Fire Advisory Task Force / Funding Request for Consultation ServicesCity of Tukwila
Allan Ekberg, Mayor
INFORMATIONAL MEMORANDUM
TO: Community Services & Safety (CSS)
FROM: Chief Jay Wittwer
BY: Deputy Chief Norm Golden
CC: Mayor Ekberg
DATE: June 7, 2021
SUBJECT: Fire Advisory Task Force / CPSM Report Update
ISSUE
Update on activities of the Fire Advisory Task Force and the Center for Public Safety
Management (CPSM) Report review. The group is asking for the City Council to support hiring
consulting services to provide a neutral party to help move the process forward and to provide a
timeline for completion.
BACKGROUND
The CPSM report was presented to the Committee of the Whole on March 8, 2021.The report
provided recommendations for improving fire services in the city. An internal work group was
formed to evaluate the report recommendations and determine strategies to provide high-level,
financially sustainable fire services. The city will form a Fire Advisory Task Force (Task Force)
to work in a co -creative space with the community to present options to the Council.
The internal work group is providing an update on their work since March 8, 2021. The group
meets weekly and is working from a Chartering Document, previously shared with the Councill
on April 26, 2021, to define the scope of this project. The group agrees that our purpose is not
to "get rid" of the fire department, but to determine how best to provide a high-level, financial
sustainable fire services. Maintaining our current response staff, equipment, and capabilities is
the starting point of our project.
The group has solicited potential regional partners to gauge interest in partnering to provide
services as alternatives to retaining fire services in-house. The next step is to form a Task Force
to evaluate the options and present them to the Council. This community task force will be
comprised of Subject Matter Experts (SMEs), residents, business representatives, local leaders,
etc.
The group has identified the main options for providing fire services to the City of Tukwila. The
threshold decision is whether to continue to provide services as a city department, standing up
our own regional fire authority, or to partner with another organization. Then there are options to
explore within each of these options.
City of Tukwila
Provide a municipal fire department (current practice).
Establish a Regional Fire Authority within our own city.
Establish new revenue sources such as a Fire Benefit Charge and/or a Levy Lid Lift.
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INFORMATIONAL MEMO
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Partnerships
Enter a contract for services.
Annex into an existing Regional Fire Authority (RFA).
Regional Fire Authority (RFA) — These are special purpose districts created under RCW 52.26.
An RFA establishes a municipal corporation with independent taxing authority through a
property tax levy as well as a Fire Benefit Charge (FBC). An RFA requires a vote of the people
(simple majority), and the FBC requires a 60% supermajority that is renewable every 6 years,
10 years, or can be voted in as a permanent funding source. RFAs are fairly new in Washington
State as they were authorized in 2004. The first RFA is the Valley Regional Fire Authority
(Auburn, Algona, and Pacific) established in 2007. Currently there are three RFAs in King
County, three in Snohomish County, and about eight more throughout the state.
DISCUSSION
Consulting Needs
The group explored the options for consultants with experience in working with emergency
services and particularly working with cities on fire services and exploring options such as
contracting for services, annexing to a current agency or formation of Regional Fire Authorities.
The group believes engaging consulting services for this process would be beneficial to the city.
Financial Consultant Bill Cushman and Facilitator Karen Reed are two consultants who do have
extensive local experience in this arena and we are recommending contracting with them to
assist the City. The group did explore other consultant firms such as Berk Consulting and
Emergency Services Consulting International (ESC!), but these firms are more focused on
strategic plans for emergency services.
Bill Cushman is a financial consultant with extensive experience in municipal finance. Mr.
Cushman has over 50 years of budget analysis, developing financial planning models, and
strategic financial planning. Mr. Cushman has worked specifically with many fire service
providers on mergers and formation of Regional Fire Authorities. A Financial Analyst is needed
to provide "apples -to -apples" comparison projections for the Task Force to evaluate.
Karen Reed (principal of Karen Reed Consulting, LLC) provides facilitation services for
organizations looking for sustainable delivery models. Ms. Reed has extensive experience
facilitating and negotiating multi -stakeholder public policy matters. Ms. Reed is very experienced
in working with fire service providers associated with Fire Services contracts and RFAs, and has
worked with Bill Cushman on many of the projects in our area.
Mr. Cushman and Ms. Reed have teamed up to successfully guide cities such as Lynnwood,
Renton, and currently Mill Creek on exploring and implementing fire services through contracts
and forming Regional Fire Authorities. They have also worked with Fire Districts and Fire
Authorities on Sustainability Assessments, and Strategic Fire Service options in Snohomish,
King, and Pierce County.
Timeline
The internal work group would like to bring the consulting team onboard and gather information
over the next three months to provide to the Task Force. We will simultaneously implement the
recruitment and appointment process to ensure an effective Task Force with a membership that
is representative of the community and that meetings are ready to commence without further
delay.
https://tukwilawa.sharepoint.com/sites/mayorsoffice/cc/Council Agenda Items/Fire/Info Memo.docx
INFORMATIONAL MEMO
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Fire Marshal Services
Improvements to the Fire Marshal's Office (FMO) was part of the CPSM recommendations. Due
to current staffing issues within the FMO and the continued demand for fire permit services, The
group is interested in exploring various options for providing these services. These options
could include additional staff or redirection of existing staff, increased fees for cost recovery of
services, and possible partnerships with another FMO as a more sustainable service model.
The Fire Marshal and Finance Director are working on these ideas and will be presenting
options to the Community Services & Safety Committee at a future date for a recommendation
to the Council.
FINANCIAL IMPACT
The financial request for the two individual consultant contracts (Facilitation Services and
Financial Analysis) are each within the Mayor's budget authority. A budget amendment up to
$80,000 ($40,000 each) will be needed to fund this request.
RECOMMENDATION
The Council is being asked to approve the proposal for consultation services, and consider this
item at the June 14, 2021 Committee of the Whole meeting.
The Council is also being asked to approve the timeline for information gathering and continued
work on establishing the community Fire Advisory Task Force.
ATTACHMENTS
Chartering Document
April 26, 2021 Informational Memo
Bill Cushman Biography
Karen Reed Resume
https://tukwilawa.sharepoint.com/sites/mayorsoffice/cc/Council Agenda Items/Fire/Info Memo.docx
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TO:
FROM:
BY:
CC:
DATE:
SUBJECT:
City of Tukwila
Allan Ekberg, Mayor
INFORMATIONAL MEMORANDUM
Committee of the Whole
David Cline, City Administrator
Jake Berry, Public Safety Budget Analyst
Allan Ekberg, Mayor
04/26/2021
Fire Advisory Task Force Internal Working Group
ISSUE
Now that the City has received CPSM's Operations & Data Report, an internal working group has
been established to distill the knowledge contained within the report, augment it with our own, and
then apply it with the goal of providing a high-quality Fire Service to the Community at a
sustainable cost. The purpose of this memorandum is to inform the CSS of the formation of this
working group and the process it intends to use to carry -out its mission.
BACKGROUND
Mandated by Council via Ordinance 2621, the Fire Department commissioned CPSM to provide
an independent review of Fire's budgetary and management practices. CPSM presented their
findings to Council on March 8th and subsequent discussions were held during the March 15th CSS
meeting.
DISCUSSION
At the direction of the Mayor, an internal working group consisting of Mayor Allan Ekberg, City
Administrator David Cline, Finance Director Vicky Carlsen, Fire Chief Jay Wittwer, Deputy Fire
Chief Norm Golden, HR Director Juan Padilla, Local 2088 President James Booth, and Public
Safety Budget Analyst Jake Berry has been established. This group with work closely with City
Council and Community Services and Safety Committee members as well as Tukwila Staff from
other departments to gain their input and to leverage their knowledge.
With the ultimate goal of providing a high-quality Fire Service at a sustainable cost, the group will
evaluate the recommendations (both specified and implied) contained within the CPSM report and
determine which are reasonable priorities from a contractual, data, and time -based standpoint.
The group will research and evaluate other teams that have created value -driven processes so
that we can learn from their achievements and challenges. We understand that change is desired
immediately but we believe this issue is too important to rush.
Community Engagement
The working group plans to seek the assistance and input of the Community. Because the group
values the advice and knowledge of the Community, we would like to formally invite Community
members to actively participate in some of our discussions. These Community members will be
selected via a Boards and Commissions type process. To include a diverse set of knowledge we
will seek representatives from our business and residential Communities by reaching out to civic
groups, multi -family groups, business developers, and other groups as the Committee directs.
Applications to join our discussions will be sent to these groups and then, once received, will be
presented to the Committee for vetting and acceptance. The group would also like to invite a
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representative from another Fire Department within Zone 3 to provide an expert third -party
perspective.
The purpose of including such a large and diverse set of experts and stakeholders is to foster a
co -creative space that will allow for the collaborative development necessary to achieve our
primary goal.
Financial Sustainability
The term "Financial Sustainability" has become a hot topic since the release of the CPSM report
and the Group would like Committee's input on how we define this term. What does Financial
Sustainability mean to the Committee? What are the associated service -level implications?
High -Level Process
Once we have defined Financial Sustainability and Community Engagement, the group will
evaluate the 37 stated recommendations (as well as some unstated recommendations found
within the report) to determine which meet the following criteria:
• Reasonable: as CPSM's Mr. lacona stated, not all of the recommendations will make
sense for Tukwila
• Not Bargaining Related: because the Local 2088 contract runs through 2022, we will focus
on those recommendations that can be accomplished in the meantime
• Impactful: based on cost (or savings) and the return to the Community
• Label as either Policy or Procedure -Related: to determine involvement and timeline
From the recommendations that remain, we will identify those that are easiest to accomplish, the
"low hanging fruit". Tackling these tasks first will allow us to test and refine our process and
prepare us for the larger tasks.
Attachment #1 is a table containing questions the group has received from Council as well as the
group's response to each of the questions. We will include an updated version of this table with
each update to CSS and the Council.
The Mayor stated to the working group that providing a high-quality Fire Service at a sustainable
cost is one of the City's highest priorities and has drafted a team charter to guide the group and to
frame its actions and responsibilities. That charter is included as Attachment #2.
FINANCIAL IMPACT
None at this time.
RECOMMENDATION
We ask that Committee approves the formation of this Task Force and the updated Charter. With
Committee approval, the Group will present to C.O.W on April 26th to seek their input and
approval. This will allow the group to begin recruiting Task Force members in May.
ATTACHMENTS
1. CPSM Operational & Administrative Analysis: Council Question Follow -Up & Parking Lot
2. Fire Department Financial Sustainability Project Chartering Doc
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Chartering Document
A Chartering Document allows for a mutually agreed upon understanding
of what a team effort and purpose is.
TEAM name: Fire Advisory Task Force
Background:
The Tukwila Fire Department and Administration share the common goal of ensuring robust
community engagement regarding the necessary financial support to sustain Tukwila Fire
service. Our focus is to advise City policy officials (the City Council) on options and opportunities
to enable and sustain fire services to the City of Tukwila. We will rely on a data -driven focus to
ensure optimum response to questions, inform members and help drive informative outcomes.
It is the intent of the team to consider and present multiple options to help identify operational
fire service funding models while considering best practices to ensure an effective and efficient
service to the community.
Team Objective:
To advise the City Council and the public on financial recommendations and fire operational
models to facilitate a common understanding of service options. With the ultimate objective to
seek a sustained financial model that achieves public support through:
• Shared Value -Driven Process
• Co -Created Work Plan
• Communication
• Collaboration
• Cooperation
• Data Informed Analysis
• Defined operational models
• Engagement with public
• Financial modeling
• Support of the public
• Vote of the public
Overview
The team will meet regularly to review and provide oversight on data acquired, operational
models to be considered, along with financial aspects and matching revenue needs and
solutions. Appropriate community outreach shall be conducted to inform the public and seek
public acceptance while incorporating community criteria into decisions.
Team Configuration
The team shall have several members comprising of those roles deemed necessary, members
may consist of union representation, fire administration, city administration, City Council
representatives, project manager, finance, fire personnel, business community representation,
and public/community participants.
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The Mayor can help to identify and appoint the business community member(s) and the Council,
through the council president, can be asked to do the same for community member(s).
Recommendations will be accepted by all team members.
Participation by City Council representatives is recommended based on specific roles of Council
members. For example, these representatives might include Council President, Finance
Committee Chair, and Community Services and Safety Chair. The Council may also choose
representatives based on past experience working on fire studies.
The team seeks to include a large and diverse set of experts and stakeholders to foster a co -
creative space that will allow for the collaborative development necessary to achieve our goal of
providing a Community -supported and financially sustainable Fire Department model.
The expected duration of the team's activity
The team shall continue in existence until a preferred outcome is achieved and the 2023/2024
biennium budget is approved or if a resolution is achieved sooner.
Team Organization
The team will choose a chair and/or co-chairs to help facilitate meetings, this position may
rotate, based on volunteers. Each team member is an equal in the process and all due decorum
and respect is expected. Team creation generally goes through a process of Forming, Storming,
Norming and Performing, thus each individual member is expected to help each other through
this process. Sub -teams can be formed for specific tasks; while it is the duty of the sub -team to
report back to the overall team often to keep all team members informed.
Time Expectations
Team should meet no less than every -other -week, and likely more during formation and critical
times.
In Scope: The expectations & deliverables of the team
Major areas to understand / deliver information on include:
• Co -Create a Timeline and Workplan
• Value identification and agreement
• Seek all necessary data to drive a data -informed decision
• Provide a definition to required funding
• Define where required funding can be achieved from
• Receive and review public comment
• Visit with community members to share work effort and outcomes
• Produce justification of selected outcome
• Advise the full City Council on progress and outcomes
• Seek council support on decision points
• Inform the community of progress and outcomes
• Promote the desired outcome with the public/community
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Out of Scope: Items the team is not to consider
• Collective Bargaining Issues
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Team members (fill in as members are identified)
The following team members have committed to participate on this team:
Reporting Hierarchy
The team is self -actuating equals, if an issue comes up that the team cannot resolve, the mayor
can make a final decision. The team seeks to build a collaborative environment that fosters
creative and innovative thinking and that honors the perspectives and ideas of all members.
Team Principles
This team's members are bound by and subject to the City's code of ethics policy, TMC 2.95,
Code of Ethics for Employees and Appointed Officials.
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Organization/Group
Team Member Name
1
2
3
4
5
6
7
8
9
10
11
12
13
14
Reporting Hierarchy
The team is self -actuating equals, if an issue comes up that the team cannot resolve, the mayor
can make a final decision. The team seeks to build a collaborative environment that fosters
creative and innovative thinking and that honors the perspectives and ideas of all members.
Team Principles
This team's members are bound by and subject to the City's code of ethics policy, TMC 2.95,
Code of Ethics for Employees and Appointed Officials.
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Bill Cushman - Biography
Bill Cushman began his association with municipal finance fifty years ago armed with a degree in English
Literature from the University of Washington, followed by several years at various endeavors, including
a year as a disk jockey at KISW, FM, 99.9 on your radio dial, the field of technical writing seemed like a
natural fit.
He was first introduced to municipal finance as a novice technical writer and budget "analyst" for the
City of Everett in 1971. After a two-year stint in the same role with the data processing department at
PACCAR, he returned to Everett where he was named Computer Services Manager in 1976 and then
Finance and Budget Director in 1978 remaining in that role for the next 25 years.
Retiring after 30 years' service with Everett, Bill was recruited by the largest fire district in Washington,
Snohomish County Fire District 1 where he oversaw financial matters for 15 more years. The highlight of
the SnoCo FD1 gig was the development of strategic financial planning models that allowed the Fire
Commissioners and the Fire Administrative to work in concert to develop long-range financial and
organizational programs with a high level of confidence that their common goals would be met with
success.
In 1993 while still with Everett, and continuing for the next 20 years, Bill was invited by organizations
such as the Washington Association of Cities, Washington Finance Officers Associations, Washington
Fire Chiefs' Association, and Washington Fire Commissioners' Association to lecture and present
seminars about strategic financial planning. During this time, he handed out more than 3,600 copies of
a simplified planning model to introduce the audience to some of the basic concepts involved with
setting long-range goals and targets that incorporate the financial resources required to bring the
envisioned plans to a satisfactory conclusion.
The final application with SnoCo FD1 was to prepare financial plans and documents that resulted in the
creation of the South Snohomish County Regional Fire Authority, a consolidation of SnoCo FD1 and the
City of Lynnwood, an effort that was artfully managed by Karen Reed who oversaw all the planning and
logistical requirements to bring the program to a successful voter -approved completion in 2019.
Bill also provided the financial documentation that brought the City of Monroe and Fire District 3 and
Fire District 7 into a merger that was followed by the additional merger with Fire District 8 and the City
of Lake Stevens, creating a new agency, Snohomish Regional Fire and Rescue.
Other agencies that have benefitted from the financial models provided by Bill Cushman include North
County Regional Fire Authority, City of Arlington, City of Mill Creek, City of Kenmore, City of Bothell,
Woodinville Fire, Northshore Fire, City of Marysville, Marysville Fire, City of Brier, and about 35 more
municipal corporations which would be tedious to enumerate.
He is currently engaged by Whatcom County Fire District 21 with goal setting and financial planning and
the setting of fire tax levies. Also under contract is the City of Mill Creek in assisting them in seeking
alternative service provisions with a neighboring fire authority. Lewis County Fire 6 is in the process of
establishing a strategic budgeting process that incorporates most of the planning models available and
which would serve as the basis for a critical analysis of Tukwila Fire over a period 2021 through 2027.
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Karen Reed
Karen Reed Consulting, LLC
4951 S.W. Forney Street Seattle, WA 98116
(206) 932-5063 I cell: (206) 948-3556 I kreedconsult@comcast.net
■ Public Process Facilitation ■ Interlocal Agreements
■ Multi -Agency Negotiations ■ Strategic Planning
EXPERIENCE:
KAREN REED CONSULTING, LLC, Seattle, WA
Principal/Owner August 2003 — Present. Karen's consulting practice focuses on facilitation and
negotiation of multi -stakeholder public policy matters. Her clients include counties and cities in
Western Washington, state and regional government agencies, and nonprofit organizations.
Recent projects include:
• Snohomish County Fire Districts 4 and City of Everett Regional Fire Authority Facilitation
(2021 -ongoing). Facilitate discussions between three agencies seeking voter approval to
form a regional fire authority.
• City of Mill Creek Fire Service Options (2021 -ongoing) Providing strategic advice to City on
fire service delivery options.
• City of Mill Creek Park Properties Development Visioning (2021 -ongoing). Facilitate efforts
to develop multi -acre public property for park and recreation purposes.
• Arlington -North County Regional Fire Authority Annexation (2020-2021). Facilitate
discussions between two jurisdictions to secure voter approval for annexation.
• North Whatcom Regional Fire Authority (2020) Facilitate discussions between two fire
districts for potential ballot measure to create a regional fire authority.
• Seattle Public Utilities Customer Review Panel (2013 -ongoing) Facilitate 9 -member citizen
panel advising utility in development and ongoing updates of its 6 -year strategic business
plan, which links capital and operating budgets to utility rates.
• Seattle City Light Review Panel (2010 -ongoing) Facilitate citizen panel charged with
providing advice in the development and ongoing updates of the utility's 6 -year strategic
business plan linking capital investment and operations to rates.
• Everett Fiscal Sustainability Advisory Committee (2020). Facilitate citizen task force
charged with assessing options to strengthen City's financial sustainability.
• Graham Fire Department Public Education (2020). Assist fire department in developing
public education plan related to benefit charge ballot measure.
• Medina Council Retreat (2016, 2018, 2020, 2021). Develop and facilitate Council retreat.
• Monroe Court Options Study (2020). Analyze court service delivery options for cities of
Monroe, Lake Stevens and Sultan.
• Snohomish County Housing Affordability Taskforce (2018-2020). Facilitated taskforce
charged with developing recommendations to increase regional housing affordability.
• South Sound 911 Governance (2018-2019) Facilitated regional governance discussion
between Pierce County and group of cities regarding oversight of regional 911 call center.
• City of Bothell Municipal Court Options Study (2019). Analyzed local courts service options.
• City of Bothell Council Teambuilding (2018 — 2019). Teambuilding facilitation.
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• SNO911-SERS Merger Steering Committee Facilitation (2018) Facilitated successful merger
discussions between the two regional 911 call centers in Snohomish County.
• Kitsap Regional Council Retreat (2018) Facilitated retreat for regional council.
• Renton Parks Citizen Advisory Committee (2017-2018) Facilitated 16 member citizen group
tasked with developing recommendations to City for a potential parks ballot measure.
• SNOCOM-SNOPAC Consolidation (2016-2018) Facilitated discussions leading to the January
2018 consolidation of the two 911 -call centers in Snohomish County.
• Lynnwood -Fire District 1 Regional Fire Authority Planning Committee (2016-2017)
Facilitated work of elected official committee and staff group to develop finance and
operations plan for proposed regional fire authority; approved by voters in August 2017.
• King County Land Conservation Task Force (2016) Facilitated 25 -member task force pro-
viding recommendations on county executive proposal to expand green spaces preservation.
• Snohomish County Dept. of Emergency Management Strategic Plan (2015-2016)
Facilitated staff leadership project to develop department strategic plan; drafted plan.
• Auburn Mayors' Homelessness Task Force (2015 -present) Facilitated community task force
to develop recommendations to respond to homelessness in the city.
• Tacoma Property Crimes Reduction Task Force (2015) Facilitated blue ribbon panel tasked
with recommending strategies for reducing property crime in the city.
• Renton Regional Fire Authority Public Education (2015) Assisted city with developing public
communications plan that led to voter approval of the fire authority.
• Mercer Island Town Center Visioning and Development Code Project (2015-2016) Provided
strategic advice, analysis and communications materials for land use code revision effort.
• Redmond Community Homelessness Task Force (2015) Facilitated community task force
charged with making recommendations to address homelessness.
KING COUNTY, Seattle, WA
Special Project Manager, Office of Management and Budget, January 2003 -July 2003; Director's
Office, Dept. of Natural Resources and Parks, February 2002 -December 2002.
• Facilitated blue ribbon task force on County general fund budget crisis.
• Developed business plan for transformation of King County parks system. Facilitated
citizen task forces charged to recommend parks system funding options; led staff team
negotiating transfer of dozens of county parks and recreation facilities to local agencies.
CITY OF BELLEVUE, Bellevue WA
Assistant City Manager for Intergovernmental Relations 1998 -June 2001
Intergovernmental Relations Manager October 1993 through 1997
• Directed government relations for the City at regional, state and federal levels, and
negotiated service contracts on behalf of Bellevue and suburban cities.
PRESTON THORGRIMSON SHIDLER GATES & ELLIS, Seattle WA
Attorney, January 1986 to July 1992.
• Practice in municipal law and finance.
EDUCATION:
STANFORD LAW SCHOOL, Stanford, CA Juris Doctorate, 1985
POMONA COLLEGE, Claremont, CA B.A., magna cum laude, Economics and Public Policy, 1982
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