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03/09/1989 - Minutes /4 SI MINUTES: Committee of the Whole Thursday, March 9, 1989 5:00 -: 10:30 p.m. City Council Conference Room Suite 300, City Hall 324 South State Street In Attendance: Florence Bi ttner, Wayne Horrocks, Alan Hardman, Tom Godfrey, Roselyn Kirk, Willie Staler, Cindy Gust.-Jenson, Christine Richman, Lee King, Cam Caldwell, Mayor Palmer DePaulis, Mike Zuhl, Emilie Charles, Karen Wikstrom, Roger Cutler, Craig Peterson, LeRoy Hooton, John Ingli sh, Sam Taylor, Karen Suzuki-Hashimoto, Jane Er ickson, Pete Pederson, George Sumner, Frank Florence, Don Hi11, Sgt. Mac Connote, Press 1.. The City Council interviewed Karen Wikstrom prior to consideration of her proposed appointment to the Housing Authority and Appeals Board. Ms. Wikstrom indicated that she has been employed as an urban planning consultant, and understands the issues pertaining to urban housing. Council Member Roselyn Kirk asked if Ms. Wikstrom had sufficient time t.o dedicate to the board. Ms. Wikstrom stated that she had recently stopped consulting and had taken a position as an adjunct professor at the University, which would give her more time for volunteer work. 2. Counc i 1 Member Tom Godfrey moved and Courrc i 1 Member Roselyn Kirk seconded a motion to enter Executive Session t.o discuss property negotiations. Council Members Florence Bittner, Wayne Horrocks, Alan Hardman, Tom Godfrey, Roselyn Kirk, and Willie Staler voted in favor of the motion. Council Member Fonnesbeck was absent. Cindy Gust-Jenson, Roger Cutler, Craig Peterson, Cam Caldwell, Mayor Palmer DePaulis, Christine Richman, Lee King, and Mike Zuhl were present with the Council for the discussion. Council Member Tom Godfrey moved and Council Member Wayne Horrocks seconded a motion to close Executive Session. Council Members Florence Bittner, Wayne Horrocks, Alan Hardman, Tom Godfrey, Roselyn Kirk, and Willie Stoler voted in favor of the motion. 3. LeRoy Hooton, Director of Public Utilities briefed the City Council on the status of the Salt Lake County Canyon Master Plan and proposed canyon development. He distributed a summary of the proposed development and how it relates to the Master Planning process. A copy of the summary is attached. Mr. Hooton indicated that the City's position on the proposed development, at Brighton Ski Resort. in Big Cottonwood Canyon has always been that the City will support the development if it is consistent with the City's master plan, the County's Master. Plan, and if the resort agrees to the installation of a sewer line all the way t.o the top of the canyon. Mr. Hooton stated that installation of the sewer line would be a major contribution to the City's efforts to protect the watershed. Council Member Godfrey asked if Mr. Hooton would suggest that the Council send a letter to the County Commission urging them t.o make sure the Master Plan is in place prior to considering final approval of the expansion of Brighton Ski Resort. Mr. Hooton indicated that a letter would be appropriate, and that he would urge the Public Utilities Advisory Committee to send a similar letter. 4. Cam Caldwell, City Council Budget. Analyst, presented the City Council with a draft resolution concerning the Council 's support of light rail in the Salt Lake Valley. Council Member Willie St.oler asked John Inglish, Utah Transit Authority, if UTA's current intention to reduce routes in his area is an indication of what will happen when light rail is implemented. Council Member. St.oler stated that his constituents are concerned that route #6 is going to be eliminated. Mr. Inglish stated that he is aware that some routes in the City are being consolidated and rerouted as well as eliminated due to duplication. Mr. Staler indicated that he would like to see UTA continue their discussion with residents concerning the changes in the routes. Council Member Alan Hardman indicated that he was uncomfortable with the unqualified endorsement contained in the first light rail resolution, and in the resolution proposed by staff. Mr. Hardman stated that he had rewritten the resolution providing for. .long-term planning and a well expressed process. He stated that his resolution calls for a public referendum prior to the purchase of any right-of-way, purchase of the right-of-way as soon as possible after the referendum, and eventually construction of the light rail system when it is determined that it will be cost effective. Council Member Godfrey stated that Council Member Hardman's proposal ignores the problem the valley has and, according to traffic studies, will continue to have, with gridlock. He stated that he understands that the freeways will need to be improved, but that light rail must be a part of the solution to avoid a problem similar to that found in Los Angeles where no matter how many freeways are built., gridlock continues to occur. Council Member Hardman stated that he agrees that eventually light rail will need to be built, but that he is not convinced that residents will use the system. He indicated that from what he has observed on busses, Salt Lakers are not prone to using mass transit. Council Member. Godfrey indicated that UTA had stated that their ridership is within national standards, and just because a bus is empty at one moment. doesn't mean that the bus wasn't full at some point. Council Member Hardman stated that he didn't necessarily accept that as a valid argument.. Council Member Kirk stated that she likes the idea of holding a public referendum before moving forward on light. rail. Council Member Godfrey observed that if it is inconvenient to drive, residents will use light rail. Council Member Bittner asked what the scope of the referendum will. be. Mr. Inglish indicated that is will be Salt Lake County. Council Member Bittner stated that. Salt. Lake City will be a terminus, with the majority of the riders coming from the south valley. She stated that she was concerned that light rail will cause UTA to emphasize service to the south valley without adequately providing service to Salt Lake City's residents. Council Member Godfrey stated t.hat light rail will benefit Salt Lake City's residents by strengthening downtown. Council Member Bittner stated that she understands that but does not want to see a reduction in service to City residents. Mr. Inglish stated that UTA plans to double the service in the region, and that includes expanded service within the City limits -- outlying as well as downtown. Council Member Hardman asked if current utilization of busses reflects the extent to which valley residents will use the light rail transit system. Mr. Inglish indicated that light rail is more convenient in terms of the number of trains available to get from point A to point B. He stated that UTA currently has an acceptable level of ridership and are cost effective. Council. Member Hardman asked Sam Taylor t.o address the issue of how cost effective light rail. is. Mr. Taylor stated that historically light rail systems have been underestimated as to cost and overestimated as to ridership. He indicated that, in his opinion, UTA is an absolute failure and has to be subsidized. He observed that the experience of current light rail systems is that their riders are former bus users and therefore light rail has not resulted in an alleviation of car traffic. Council Member. Stoler indicated that his concern with the original resolution and with the staff resolution is that it seems to be advocating light rail over the freeway system. He stated that it is his understanding that it is not an either/or situation, but that both the freeway and the light rail need to be done. Council Member Godfrey said that he agrees that work does need t.o be done on the freeways, but believes light rail should be finished first to help alleviate the strain when the freeway is torn up for repair. Council Member Kirk indicated that she likes Council Member Hardman's resolution. Council Member Godfrey indicated that he did too, with the quali.ficat.ion that the paragraph relating to the fact that light rail is more cost effective than building new freeways be reinserted into the resolution. Council Member Hardman indicated that he did not believe that light rail is more cost. effective. Council Member. Godfrey stated that the resolution should be based upon what is best for the City as an independent entity. He stated that light rail will not only bring more people into downtown, but will make the residents of downtown more mobile. Council Member Stoler stated that he did not. want to send the signal that the City would close the door on the expansion of the freeway system. Council Member Godfrey stated that he had no intention of sending that signal, but that the signal needs t.o be send that light rail is a more cost effective mode of transportation than the private automobile. Council Member Hardman observed that it is not more cost effective if no one rides it. Council Member Godfrey said that the City's biggest problem right now is parking, and light rail will help to get people downtown without making them deal with having to park. Council Member B.it.tner stated that her concern is that the City does not have adequate representation on the UTA Board of Directors. Council Member Horrocks suggested that the valley be broken into districts and representation from each district be required. Council Member Hardman stated that he is not opposed to light rail, but doesn't believe that UTA will get the ridership necessary to make it work. He indicated that building the system now is foolish, that it would be best to purchase the property wisely after the referendum. Mr. Inglish observed that large scale right-of-way purchase is still a long way off. He indicated that no major acquisition could take place until after the referendum because UTA does not have the necessary funds. He indicated that the money they are requesting from the federal government is simply to purchase parcels of land which, if developed incompatibly, would preclude an effective light rail system. He indicated that any real movement towards a light rail system is 2-3 years away. Mayor Palmer DePaulis stated that since the resolution is supposed to be a joint resolution between the Council and the Mayor, he would like to have his staff review the issue. He indicated that he will direct his staff t.o discuss it with the Council Staff, and together they can develop a new resolution which may please everyone. 4. Karen Hashimoto, Director of Human Resource Management, briefed the City Council on the three policy areas in her department.. Ms. Hashimoto indicated that the first issue is the "pay for performance" policy she would like to implement as soon as possible. Ms. Hashimoto indicated that the City's current merit program is based on longevity rather than performance. She stated that her goal is to make the City a more productive organization. Ms. Hashimoto stated that her department's second policy issue is management development and training. She indicated that in order to successfully implement the pay for performance program, supervisory personnel must be trained to work well with the employees, and develop their management skills so that performance appraisals will be correctly done. Jane Erickson, Risk Manager, briefed the City Council on the third policy issue in Human Resources. She indicated that the risk management division is undergoing a reorganization. Ms. Erickson stated that a number of the goals articulated in the audit of risk management are currently being addressed. She distributed a copy of the recently completed risk management annual report for the Council's review. Cam Caldwell, City Council Budget Analyst, stated that he is enthused by some of the ideas included in the Department's policy statement. He indicated that the development of a true merit system is especially important t.o the Council. He stated, however, that the implementation of the pay for performance program poses a number of. problems. He indicated that his recommendation is that the program be implemented on a pilot basis to begin, evaluated., revised as necessary, and implemented City-wide. Council Member Tom Godfrey asked if Mr. Caldwell was recommending a slower implementation process because labor negotiations are involved. Mr. Caldwell stated that that was one reason, another, reason is that implementation will be difficult because it must involve training. Council Member Godfrey asked exactly what. Mr. Caldwell had in mind when he indicated that he would like to see the in-house training expanded. Mr. Caldwell stated that he believes the City would benefit if the program were expanded to include programs similar t.o the one conducted by Deputy Fire Chief Florence. Ms. Hashimoto stated that she had proposed a program which would be ►unique to Salt Lake City. She indicated that the program run by Deputy Fire Chief Florence is a good one, but that it is simply one purchased from ICMA. Ms. Hashimoto stated that she could have used "canned" or purchased programs for what she wants to accomplish, but that she wanted to develop something City employees would feel invested in. She stated that another advantage to developing our own program is the availability of baseline data for future evaluation. Council Member Godfrey asked how much a canned program costs. Mr. Caldwell stated that the average cost is $300 per group trained. Council. Member Godfrey asked if the Department was continuing with the restructuring of the risk management function. Ms. Hashimoto stated that the Department is still making an effort to grapple with recommendation concerning the risk program. She said that they have made progress and have developed some effective new programs which they would like to see through to fruition. Council Member Bittner asked if any of the four recommendations except for the first were within the prerogative of the City Council. She then stated that the pay for performance issue is important, but that in her opinion a true merit system is almost impossible to achieve because supervisors are not willing to take the heat. Council Member Kirk stated that she knows that it is difficult to implement a true merit system, but that it can be done. She observed that it has been done in private enterprise and in education. Ms. Hashimoto stated that if a supervisor cannot adequately evaluate their employees, there is either something wrong with the job description or with the supervisor. She agreed that it is very difficult to honestly evaluate an employees performance, but that if the City, as an organization, fails to provide their supervisors with a system, the City is more culpable for poor performance than the individual supervisor. She indicated that the system she is proposing is one that will use both standard performance indicators and indicators tailored to specific jobs. She stated that it is the City's responsibility to provide an evaluation system and training for supervisors to utilize the system. Council Member Godfrey observed that the education system did it, it was difficult., but now there are very few complaints. Mr. Caldwell stated that he thoroughly agrees with the department on the importance of providing an adequate system of evaluation, but that. he believes it will be difficult to impose pay for performance on an ingrained longevity system. Council Member Bittner stated that she did not agree that the City's current system is strictly a longevity system. She stated that her experience with the City's merit system is that it does provide the supervisor the opportunity to give the employee feed back. The supervisor may not choose to reinforce that feedback by a reduced or increased merit, but they can still give the feedback. Council Member Bittner stated that she would support a pilot program as long as it was implemented on a narrow basis which can be easily evaluated. Ms. Hashimoto stated that she believes that it is time that the City sent the signal to all of its employees that good performance is respected and rewarded. Council Member Bittner stated that good performance does not go totally unrewarded in the City. Council Member Stoler asked what Ms. Hashimoto's definition of merit is. Ms. Hashimoto stated that employees are evaluated based upon performance standards which have been negotiated by the supervisor and the employee in advance. She indicated that when it is time for evaluation, the supervisor rates the employee in the pre-negotiated areas as "below standard", "standard", and "exceeds standard". Council Member Stoler observed that the City used to have a "true" merit system, but that the system had resulted in law suits and disagreements. Because of the headaches the original merit system caused, Council Member Stolen stated, the system had degenerated into a longevity system. Council Member Kirk indicated that she thought Council Member Stoler was wrong, because if supervisors are adequately trained it can be done, and done fairly. Council Member Hardman asked Council Member Kirk on what basis a public safety employee can be evaluated, the number of burning buildings they enter? Council Member Kirk stated that with established criteria for performance, any employee can be effectively evaluated. Council Member Stoler observed that merit systems can cause morale problems. Council Member Bittner indicated that before endorsing a merit system she would like specific information on the benefits to be derived from its implementation to see if the benefits outweigh the possible employee problems. Council Member Godfrey observed that the message the Council was currently sending the Department and staff contradicts what was stated earlier when the Members asked for a true merit system. He stated that the direction to develop a merit system was given when the Council reviewed compensation policies last fall.. He expressed concern that the Council is backing-off when the Department is trying to accomplish what the Council said they wanted. Council Member Bittner indicated that she is concerned not about the excellent nor the sub-standard employees, but about the average worker. She stated that the average worker will never be rewarded for simply doing his/her job. Ms. Hashimoto observed that employees have a tendency to produce more and of a higher quality if they feel that they will be rewarded for a job well-done rather than punished for a poor job. She stated that another facet of the entire pay for performance concept is that during tight financial times, the best employees will leave if they don't feel that they will be compensated proportionally for a job well done. Ms. Hashimoto also observed that Council Member Godfrey was correct when he stated that she was simply responding to the direction given earlier by the City Council to develop a true merit. system. She stated that not only had she developed a pay for performance tool, but had developed it in such a way that each supervisor can tailor it to meet their unique needs. Council Member Stoler asked Ms. Hashimoto to provide him with the names of. other City"s which have a true merit system, how they implemented it, and what problems they have encountered. Council Member Horrocks stated that he would like the pay for performance program implemented on a pilot basis with an evaluation in one year. Council Member Horrocks also stated that he is concerned that some sort of provision for rewarding longevity be retained. Council Member Kirk agreed that the pay for performance program should be implemented on a limited basis and evaluated in one year. Council Member Hardman suggested that the program be implemented in two departments, one with easily identified performance standards, and one with more subjective performance standards. The Council did not conduct a straw poll on the four staff recommendations. The City Council indicated that implementation of a pilot program should proceed. 5. Pete Pederson, Fire Chief, reviewed the goals of the Fire Department for the coming year. A copy of the written briefing is attached. Battalion Chief Don Hill reviewed the status of consolidated dispatch. He indicated that supervisory personnel have been cross-trained in both fire and police dispatch procedures. Chief Hill stated that cross-training takes approximately 3 months per dispatcher, and they can only train three dispatchers at a time. Based upon the training constraints, the Department hopes to have all dispatchers cross-trained within two years. Council Member Hardman asked if the Fire Department was using any information from other municipalities in developing their cross-training procedures. Chief Hill stated that Salt Lake City is developing new ground in the process because other municipalities discourage the use of cross-trained dispatchers. He indicated that the consensus opinion is that fire and police procedures are different and therefore it is difficult for a dispatcher to switch back and forth. Council Member Stoler stated that it was his recollection that. the Administration had advocated for the functional consolidation of the dispatch units. Chief Pederson stated that he had advocated for the functional consolidation of supervisory personnel, but had never been proactive on the issue of functional consolidation of the dispatchers themselves. Council Member Stoler asked Chief Hill to outline the different dispatch routing systems for the police and fire functions. Chief Hill indicated that on the police side a cal]. is received by the 911 operators, routed to the complaint takers, and then eventually routed to the dispatcher who identifies an available unit and routes them to the service address. On the fire side, a call is received by the 911 operators and sent directly to the dispatcher who, in the case of a fire call dispatches the nearest available engine, and in the case of a medical emergency, assesses the problem, and while the engine is dispatched remains on line to give medical aid instructions. Council Member Stoler asked if the medical aid instructions are given step by step in a dispatchers manual. Chief Hill indicated that they are listed in a binder by type of complaint and include thorough instructions. Battalion Chief George Sumner briefed the City Council on his goals for implementing the new fire inspection fee structure included in the newly adopted Uniform Fire Code. He indicated that the new fees are based upon a level of service which businesses expect, exceeding the normal level of service provided by the department. Chief Pederson responded to the fire department recommendations proposed by Council. staff. He indicated that he endorses recommendation number 1: Encourage the Fire Department to implement its Fire Risk Analysis and Master Planning process, and to formally establish a Master Plan Task Force. On recommendation number 2: Request the Fire Department to expand the use of engine companies in fire prevention and Uniform Fire Code permit inspections, and to report on its goals for those inspections as part of the budget process; Chief Pederson stated that the fire engine companies have plenty to do each day including additional training and the fire analysis inspections, and he was not comfortable increasing their daily duty roster. Cam Caldwell, Council Budget. Analyst, indicated that the engine company is already on si.t.e and shouldn't. have any problems with simply conducting the additional inspection while they are there. Chief Pederson stated that he is not comfortable placing the engine companies in a fee collecting role. Chief Pederson stated that he had already fulfilled recommendation number 3: Request the Fire Department to provide more specific information about department goals, including specific information about service levels and priorities, as part of the budget process. Council Member Kirk asked if Chief Pederson intended to address the issue of flying squads in the near future. Chief Pederson stated that in his departmental response to the Council's independent audit he had opposed the flying squad concept because training becomes very difficult in that situation. Chief Pederson stated that if the Council chose to mandate him to hire a flying squad immediately he would now be interested because that additional squad would mean a service level increase for his department. Mr. Caldwell stated that the flying squad issue will be more fully addressed when the status of the audit findings are presented to the Council in the next few months. Chief Pederson stated that he had already fulfilled recommendation number 4: Request the Fire Department to provide an update regarding the tasks to be accomplished to complete consolidation of the public safety dispatching process, together with expected time frames for those tasks. Chief Pederson stated that on recommendation number 5: Authorize the Fire Department to immediately hire an additional Fire Inspector to conduct Uniform Fire Code permit inspections; he would be more than willing to accept the funding. Chief Pederson stated that his only problem with the recommendation is that the Mayor had not completed his budget process and it would be premature for. the Fire Department to advocate a service level increase for themselves before overall administrative priorities had been established. Council Member Hardman asked how this recommendation relates to recommendation number 2. Mr. Caldwell stated that doing both would be appropriate. Council Member Hardman asked how many permit inspectors there are currently authorized in the Department. Chief Sumner stated that he has 10 inspectors. Chief Sumner indicated that adding an inspector will not speed the implementation of collection of the new fees because his inspectors are constrained by demand and training. The Council indicated in a straw poll that they support recommendation number 1, don't support number 2, have already received 3 and 4, and will wait to more fully consider number 5 when the Mayor presents his budget in May. Chief Pederson briefed the City Council on the status of construction on Fire Station No. 4. He indicated that he had projected his budget through the end of the year, and barring any unforeseen emergency, will be able to finish the year without asking the Council to increase his budget. Marianne Cassedy, Mayoral Policy Analyst, indicated that the construction site was currently closed down due to problems with the first construction company. The bonding company was in the process of hiring a second construction company who will finish the work on the station. She stated that the projected completion date on the station is now June. She stated that the City's primary goal is to get the station built and operating as soon as possible. Chief Pederson stated that he is covering the shortfall caused by the construction delays by maintaining vacancies in the staff. He stated that this has resulted in the closing of the airport station on a few occasions. Council Member Kirk asked if the delay on Station No. 4 would cause a problem with the construction of Station No. 10. Ms. Cassedy stated that the status of Station No. 4 will not affect the construction of Station No. 10 but that Station No. 10 is currently delayed because of engineering problems with the site. Council Member Hardman asked if Station No. 15 will close when Station No. 4 is opened regardless of the status of Station No. 10. Ms. Cassedy indicated that the closure of Station No. 15 is an issue independent of Station No. 10, and that Station No. 15 would close upon completion of Station No. 4. i ATTEST: . , CIT. REC(q1a • SUMMARY OF THE PROPOSED DEVELOPMENT OF THE BRIGHi'ON SKI RESORT TIME FRAME: July or August of 1988, Brighton withdraws their request for approval from Salt Lake County, until the County Master Plan was further along-in the process. July of 1988, Brighton Community Review Committee was formed. (They have been involved throughout the planning process ) August 4, 1988, scoping document prepared and released to the public. September 30, 1988, public comment period ended on the scoping document. (We responded by letter on 9/7/88) October 1, 1988, began incorporating public comments into the environmental assessment. February 1989, complete and release the environmental assessment to the public :'for review. March 7, 1989, public openhouse held on the proposal March 14, 1989, public comment period ends on the environmental assessment. Late March of 1989 Brighton requests county approval. Mid April 1989, Forest Service Decision made on proposal. PROPOSAL The proposal is consistent with the 1 ) the Forest Service plan, 2) latest county master plan draft and 3 ) stays within the forest permit boundaries. WATER ISSUES ' 1 ) We need erosion control 2) No degradation below state standard 3 ) There will be a 14 percent increase of sewage and gray water 4) Two acres of weland affected 5) Reseeding of cleared acres (28 acres) _ w ENVIRONMENTAL ASSESSMENT REQUIRES 1 ) No water quality degradation allowed 2) Best management practices to control erosion 3 ) Water Quality monitoring programs to be developed 4) Onsite inspection by us, health department and the forest service 5 ) Mitigation measures for erosion control, i.e. contour furrows, straw matting, installation of straw bale fences, etc. . . 6 ) Water Sampling and testing, Brighton will pay for this work 7 ) Revegetation of cleared areas a. Native species wherever possible 8 ) Revegetation plan to be developed 9 ) Water Resource plan developed a. Regulate overland flows (to the 100 year flood flows) b. Filter construction pollutants from the stream 1. Check Dams 2. Absorbtion ponds 3. Detention basins 4. Stream bank stabilization 5. Diversion ditches c. Maintain 80 percent of greater of ground cover within 50 feet of all lakes and 200 feet of all streams. 10) Locate trails away from streams 11 ) Schedule construction during low flow periods 12) Brighton has committed to connect to the sewer line if it is extended into the Brighton Community. Until this happens they will: a. continue to all sewage from the canyon until the sewer line is built. b. enlarge or build a new septic tank drain field (gray water) until the sewer line is built. Joint Resolution of the Mayor and Salt Lake City Council In Support of Light Rail Transit Systems Along the I-15 Corridor WHEREAS The Salt Lake City metropolitan area is home to more than one million people, and its population is expected to increase substantially by the year 2000. This growth will place an increasing strain on the Salt Lake Valley's transportation systems. As the commercial core of the State of Utah, Salt Lake City needs to maintain an orderly flow of workers, shoppers, residents and tourists. In its review of transportation options the Utah Transit Authority and Wasatch Front Regional Council have confirmed that a light rail transit system would be the most effective and economical means of transporting people throughout the Salt Lake Valley. A light rail system would be more cost effective than expanding or renovating freeway systems. It would carry more communters per dollar spent than would a freeway, would help reduce air pollution,_ and would lessen downtown parking problems. As a transportation solution a light rail system is a logical choice. As demand increases additional light rail cars can be added to the schedule to meet those needs. " Because of its geography and transportation patterns, the Salt Lake Valley is an ideal site for a light rail system in the Western United States. As such, the proposed system would serve as an excellent model for other communities in addition to helping to resolve an important transportation priority. NOW, THEREFORE, BE IT RESOLVED The Mayor and Salt Lake City Council strongly urge the State of Utah, the Wasatch Front Regional Council, and the Utah Transit Authority to proceed immediately with plans and construction to build a light rail transit system from downtown Salt Lake City to the southern end of the Salt Lake Valley. Joint Resolution of the Mayor and Salt Lake City Council In Support of Light Rail Transit Systems Along the I-15 Corridor WHEREAS The Salt Lake City metropolitan area is home to more than one million people, and its population is expected to increase substantially by the year 2000. This growth will place an increasing strain on the Salt Lake Valley's transportation systems. As the commercial core of the State of Utah, Salt Lake City needs to maintain an orderly flow of workers, shoppers, residents and tourists. In its review of transportation options the Utah Transit Authority and Wasatch Front Regional Council have determined that a light rail transit system would be an effective and economical means of transporting people throughout the Salt Lake Valley. Because of its geography and transportation patterns, the Salt Lake Valley is an ideal site for a light rail system that can help resolve an important transportation priority of the Salt Lake Valley as the population and traffic volume of the Salt Lake area grow to the size where such a system is warranted. In addition, it will require an increased public commitment to the usage of mass transit resources and a recognition that public transportation is a convenient,. economical and timely alternative to private transportation. It is clearly 'Understood that the public process to construct a light rail system would include a careful analysis of potential environmental impact, a well reasoned assessment of the size and location of a proposed system, full disclosure of the costs of this project, and a public referendum to obtain local financial support. NOW, THEREFORE, BE IT RESOLVED The Mayor and Salt Lake City Council recommend that the State of Utah, the Wasatch Front Regional Council, and the Utah Transit Authority to proceed with plans to lay the foundation to build a future light rail transit system from downtown Salt Lake City to the southern end of the Salt Lake Valley. In passing this resolution the Mayor and Salt Lake City Council acknowledge that this process will be dependent upon public support via a referendum vote. • • iti 1 ^., sAiRgiamprremmarcNi OFFICE OF_THE CI-Pr COUNCIL 211 CITY AND COUNTY BUILDING - SALT LAKE CITY, UTAH 84111- ' 535-7600 ' 21 January 1986 NEWS RELEASE CITY COUNCIL AND MAYOR SUPPORT CONSTRUCTION • OF "LIGHT-RAIL" TROLLEY SYSTEM Medium-size Salt Lake City is beginning to feel big-city traffic 6 woes, aggravated in part by the area's_otherwise spectacular geography and in part by a burgeoning population. The Salt Lake City Council and Mayor Palmer DePaulis on Tuesday evening voted to_ support the development of a "light-rail" trolley system as a way to ease traffic congestion from downtown to the southern suburbs. The joint resolution supports the efforts of the Wasatch Front Regional Council to develop transit alternatives for the Interstate 15/State Street corridor. Seven options for transit improvements have been developed by the WFRC, which has responsibility for transportation planning along the Wasatch Front. Half of the alternatives focus on adding new lanes and interchanges to I-15 and other north-south arteries. The Council and Mayor support light-rail trains--in other words, modernized trolleys--because they could carry enough commuters to stabilize and even eventually reduce vehicle traffic bound for downtown. City officials are concerned that adding lanes to the Interstate 'will simply allow more cars to stream into downtown. This would obviously require places for the cars to park. In their resolution, the Council and Mayor state they_ar_e unwil_ l ing_and unable financially to commit City resources to build large, expensvei municipal park1ng terraces. "The opportunity is too great to miss out on building a transit system for the 21st Century in the Salt Lake Valley," said City Council Chairperson Earl F. Hardwick. And, according to WFRC officials, the Salt Lake Valley may be the most geographically ideal area in the nation to build a light-rail system. The relatively narrow valley with the • concentrated downtown area on the north end naturally forces traffic to clog the primary north-south routes. - LIGHT-RAIL RESOLUTION Page Two With 1 .36 million people expected to be living in the metropolitan area in 15 years--a 35 percent increase over the. current 1 million residents--it is clear progress must be made to address present and future traffic problems. The resolution will be sent to State transportation officials, the Utah Transit Authority board of directors, the WFRC, the Salt Lake County - Council of Governments and other governments and agencies. RESOLUTION ATTACHED. FOR MORE INFORMATION, PLEASE CONTACT: Brian Wilkinson, City Council Office, 535-7600 J • JOINT RESOLUTION OF THE MAYOR OF SALT LAKE CITY AND THE SALT LAKE CITY COUNCIL IN SUPPORT OF LIGHT-RAIL TRANSIT SYSTEMS ALONG THE INTERSTATE 15/STATE STREET CORRIDOR RESOLUTION NO. OF 1986 WHEREAS The Salt Lake City metropolitan area is home to more than 1 million people and is expected to grow. by 35 percent to 1.36 million people by the year 2000. This rapid increase in the population of Utah's major urban area has and will continue to place an increasingly serious strain on the Salt Lake Valley's transportation systems. It is clear that new systems must be built immediately or the existing systems will be completely overloaded and ineffective. Salt Lake City is the commercial core of the State of Utah. As such, the Mayor and Salt Lake City Council are keenly interested in improving the orderly flow of workers, shoppers, residents and tourists into the City. The Wasatch Front Regional Council,- of which Salt 'Lake City is a member, has been studying transit alternatives for the Interstate 15/State Street Corridor in an effort to =alleviate congestion now and in the future. The Regional Council has developed at least seven options for the • improvement of the Corridor transportation system. NOW THEREFORE BE IT RESOLVED The Mayor of Salt Lake City and the Salt Lake City Council strongly urge the State of Utah, the Wasatch Front Regional Council and the Utah Transit Authority to proceed immediately with plans and construction to add to the capacity of the transportation systems that bisect the Salt Lake Valley from north to south. Specifically, the Mayor .and City Council strongly recommend that a "light-rail" trolley system be built from downtown Salt Lake City to the • southern reaches of the Valley. A light-rail system would be much more cost-effective than expanding or renovating freeway systems. It would carry more commuters per dollar spent than would a freeway, it would help reduce air pollution, it would lessen downtown parking problems and it would provide a steady stream of pedestrians needed to invigorate the hub of Salt Lake City. Because of its geography and transportation patterns, the Salt Lake Valley is very likely the most ideal site in America for a light-rail system. Adding more lanes to the freeway system would only create room for more traffic, for more congestion. And, it only solves half the problem. Where will the additional cars park once they reach the City? The Mayor and City Council are unable, and unwilling, to commit City resources for vast municipal parking lots to serve motorists streaming downtown on the freeway. The economic strain would be too great for the taxpayers of Salt Lake City. TRANSPORTATION CORRIDOR RESOLUTION . Page Two A light-rail system is a far more logical choice as a transportation solution. If demand increases, as it surely will., more trolley cars can simply be added to the tracks. An expanded freeway will only become obsolete and in need of futher expansion, probably in less than a decade. It would be prudent to renovate the existing freeway facilities, however. Finally, the Mayor and City Council urge the State of Utah and the Utah Transit Authority to look beyond the Salt Lake Valley's transportation needs and to plan additional phases of a light-rail system that will connect the capital city with Ogden and Provo/Orem. ADOPTED THIS 21st DAY OF JANUARY 1986 Mayor Chairperson Council Member Council Member Council Member Council Member • .Council Member Council Member Council Staff Report Executive Stimmary March 9, 1989 Human Resource Management Policy Meeting * The Department of Human Resource Management (HRM) is proposing the establishment of a "true merit" performance based compensation plan for all City employees. Council staff support the concept of performance based compensation, but perceive several specific hurdles which need to be overcome prior to implementing the specific proposal submitted by the Department. We recommend that Council direct the Administration to 1) establish a pilot program under controlled conditions, 2) propose interim performance based incentives for City employees during the coming year, and 3) lay the foundation for implementing a future performance based system while addressing the yet unresolved concerns identified by Council staff. * The Department has proposed that an in-house training program be initiated for first-line supervisors. Council staff strongly support this in-house training concept as both economical and effective. We recommend that the Department be encouraged to broaden the scope of this training program to include non- supervisory employees. We also recommend that the Department be encouraged to develop a program that uses capable in-house staff as trainers for other courses 1) for which those staff are qualified, and 2) which meet identified City training needs. * The Department is in the process of implementing many of the recommendations included in the Risk Management Audit for the Risk Management function. * It may be timely for Council to request the Administration to provide an evaluation of the options, advantages and disadvantages in locating the Risk Management function in the Finance Department, Department of Human Resource Management, or the City Attorney's Office. -1- Council Staff Pei..oi? Human Resource Management Policy Meeting March 9, 1989 Council has received the packet prepared by the Director of Human Resource Management (HRM) which identifies three policy issues. The following is the staff response to these three issues. Discussion of Issues Pay for Performance Program The program proposed by the Director is intended to redirect the focus of the City's compensation system on recognizing and rewarding true performance. It is generally acknowledged that the current compensation system is a longevity based system. Philosophically, the Council staff support the intent of the Director in proposing this change in focus. We note, however, several substantial hurdles which impede making this change, as proposed, at this time. First, departments and divisions differ substantially in the extent which they possess the capability to formalize their objectives and measure performance. A number departments, such as Public Works, have refined their goal setting and cost accounting systems to a degree that reflects great attention to both management effectiveness and performance details. Unfortunately, several departments- have not formalized their goals and objectives to the extent of Public Works. Without well defined and measurable goals, departments may have a difficult time equating individual employee performance with the goals of their department. Second, the mechanism proposed to measure performance is very general and is not likely to apply to all employee positions. It is possible for a well- trained supervisor to adapt this evaluation process to make it position specific. This assumes that a great deal of time is spent in training supervisors to conduct an interview, to develop performance goals with employees, and to explain how performance will be measured. However, the City's training resources are expected to be meager for the coming fiscal year. Without adequate training, the City can predictably expect to generate a great amount of organizational discord and cries of favoritism if it attempts to implement a true merit system without preparing the organization's supervisors and managers to implement that system. Council staff concur with the Director's assessment that one of the keys to a successful merit based pay system is top quality training of supervisors in the delicate art of evaluating employees. We strongly support providing the training for supervisors and managers to make a merit system work. We are pessimistic that the proposed program will achieve its purpose if that training is not completed before this program begins. Third, the program is based upon a major change in the City's multi-stepped pay plan. According to the Director, the City would negotiate a change in the pay plan system with its respective unions and simply administratively modify its pay plan for nonunion employees. The current multi-step plan -2- disproportionately equates time employed by the City with the ability to assist in achieving organization objectives. At the same time, it is unlikely that the unions will give up their current pay plan. Before establishing pay ranges the City should also develop clearly defined criteria for determining range breadth, and the Council should take part in helping to define that criteria if Council deems that this is a policy issue. Finally, the Department suggests that it would "enhance organizational culture" to implement a system that rewards performance and productivity. The Council staff fully supports the ideal proposed by the Department. There are numerous programs that communicate the commitment to rewarding an employee's contribution to achieving organization goals. Staff recommends that the Department come back to the Council with a less ambitious proposal that can be implemented during the coming year. In the interim, the Administration can then lay a proper foundation for the full implementation of a true performance based compensation system. In addition, Council may wish to encourage the Department to identify opportunities to pilot test the proposed merit plan. Such a pilot program could include 1) training of both supervisors and affected subordinates, 2) clearly identifying how the employees' performance plan incrementally achieves increased productivity, and 3) establishing an equitable reward incentive. Management Development/Training Initiatives At the time that the Council formally approved upgrading Human Resources from a division status to a department, it did so with the condition that increased efforts be made to improve the City's training and organization development capacity. The proposed training program is an in-house program for first-line supervisors. It proposes to utilize an outside consultant, who will simultaneously train in-house staff who will then continue the training for other City employees. Evaluation of the trainees' learning gain will be based upon their respective supervisors' perception of their ability to apply the training received to a specific department project. The City's training plan is the product of a Training Committee which has conducted a survey which sought input from employees, supervisors, and mid- management personnel. Council staff endorses this low cost but practical approach to staff training. Council may also wish to encourage the Department to utilize in-house staff to conduct a broad variety of other training courses, perhaps for a small honorarium. There are a multitude of excellent training courses, such as the International City Management Association ( ICMA) green book series, Government Finance Officers Association (GFOA) courses, and other timely topics, which a large number of City staff could conduct. Using qualified in-house instructors in this way would enable the City to increase productivity and achieve identified training goals. Risk Management Realignment The Director has been responsive to many of the suggestions for improving the City's Risk Management function which were outlined in the management audit. According to the Director, the Information Management System needs of the Department should be resolved by July, 1989. The Department has proposed to • -3- hire a Loss Control Coordinator to serve as a consultant to individual City departments in developing loss control plans. Training for first line supervisors is a component of the City-wide first-line supervisor training course, according to the Director. The proposed Safety Committee recommended in the management audit has been incorporated in a Risk Management Committee. With the recent completion of the Finance Audit, it might be appropriate for the Council to review the appropriate placement of the Risk Management staff. Council is aware that the Finance audit proposed that the Risk Management function be transferred from HRM to the Finance Department. A case might also be made to move Risk Management to the Attorney's Office. Staff Recommendations • 1) Defer support of the proposed Performance Program but encourage the Department to a) establish a pilot program under conditions recommended in the staff report, b) come back to the Council with additional win/win productivity incentives, and c) work with employee groups to set the stage for the potential future implementation of this program. 2) Endorse the proposed in-house training concept. 3) Encourage the Department to develop additional in-house training proposals that enable qualified employees to serve as trainers for other in-house training programs that achieve City training goals. 4) Request the Administration to provide an evaluation of the options, advantages and disadvantages in locating the Risk Management function in the Finance Department, Department of Human Resource Management, or the City Attorney's Office. -4- Department of Human Resource Management Policy Goals - 1989/90 Executive Summary The Department of Human Resource Management is proposing three initiatives for fy 89/90 . The three issues for policy review with the Council will address (1) A Pay for Performance Program, (2) Management Development/Training Initiatives and ( 3 ) Risk Management Realignment. In preparation for policy discussion, Human Resource elected to construct its presentation in the following manner . First , we described how each program responds to an organizational need . This information was derived either by direct measurement instrument or direct feedback from administration and/or Council . Secondly, we provided the goals and objective which respond to the organization needs. Finally, we propose to evaluate the progress made in the three program areas . I . Pay for Performance - To provide a system which will dif- ferentiate pay based on performance measures rather than time of service. Will require performance based evaluation system, restructured pay plan and training. II . Management Develop- ment/Training - With the City-Wide Training needs assessment completed, the curriculum is being developed. First training session to be conducted in May, 1989 . Training decision will be coordinated through the City-Wide Training Committee. They will include the incorporation of skills (feedback, goals clarification, and other related activities) training for pay- for-performance program. III . Realignment of Risk Management - The restructuring of the Risk Manage- ment function will now provide a more • concentrated focus on risk management including the preparation of the Risk Management Annual Report, establishment of a data base management program that will help to track worker ' s comp, loss control and other risk management assessment. t (L Wi BUY • SALT BAKE MCITY(GORPORATIONj HUMAN RESOURCE MANAGEMENT KAREN SUZUKI-HASHIMOTO SUITE 530 PALMER DEPAULIS DIRECTOR 324 SOUTH STATE STREET MAYOR SALT LAKE CITY, UTAH 84111 PROGRAM ADMINISTRATORS: -(801) 535-7844 ALAN BRIDGE, M.o.D. PATRICIA CAMPBELL, C.C.P. FRANK FRASER JANE ERICKSON, A.R.M. 24 February 1989 W.M. "Willie" Stoler 324 South State Street • Suite 300 Salt Lake City Council ;• Salt Lake City, Utah 84111 Dear Chairman Stoler : In preparation of the policy presentation to the Salt Lake City Council on 9 March, please find the attached policy issues for the Department of Human Resources. I look forward to the opportunity to confer with the Council regarding the proposed programs. Thank you for your attention regarding this matter . If there are any questions or comments, please advise. • Sincerely, Karen Suzuki iashimoto, Director KSH/k cc: Mayor DePaulis Cam Caldwell attachment DEPARTMENT OF HUMAN RESOURCES PROGRAM PROPOSALS FY 89-90 The following represents the three (3) major initiatives to be pro- posed for fy 89-90. The format for presentation will outline the organizational need, program response and objectives, and evaluation of success. PAY FOR PERFORMANCE PROGRAM Organizational Need: According to a management survey administered in preparation for the Second Annual Mayor's Management Conference, the number one need identified by top management was to address the issue of "unfair" rewards. Currently, economic constraints may restrict salary incentives beyond a one-step merit increase. Secondly, the merit increases have been awarded, not on the basis of merit but rather as a yearly entitlement. There is no method by which a manager can differentiate between the average and outstanding employee, based on compensation. As the City experiences declining revenues reductions in personnel may be necessary. Layoffs may be required to provide the necessary resources. Greater demands with less employees will require more productive employees. A mechanism must be found and established to recognize and reward employees based on performance and merit. Program Response: The Department of Human Resources proposes a Pay for Performance Program that will provide management with a system to differentiate pay based on performance, rather than calendar considerations. The program will require a system approach, rather than merely establishing a program without the necessary support and preparation to succeed. 1. Develop/modify performance based evaluation system. This performance evaluation component is critical to the success of the Pay for Performance. The City's current 300 series evaluation program may be applicable with some modification, but more important than the instrument used, is the need to establish specific expectations that evaluations are truly measuring performance, and that such measures will be compensated accordingly. 2. Restructure current pay schedules to provide for ranges rather than steps and providing the necessary flexibility. The flexibility provided will help to maintain budgetary limits. For example, the department may be provided only a 2.75% increase overall, yet that 2.75% may be dispersed at a higher percentage for high performance and a lower rate for standard performance. 3. Provide supervisory training program to enhance management skills to effectively provide feedback and motivation for productivity (2nd Departmental Proposal) . Supervisors need to be trained on a variety of areas. If we require our employees to be more productive, we also need to train our supervisors to be more effective. In light of the pay for performance program, the role of the supervisor is critical. 4. To enhance organizational culture by rewarding outstanding over average performance. When the corporation, through established programs, differentiates between standard and outstanding performance, productivity will increase because of higher rewards, more productive employees will be retained. Evaluation: One year after implementation, the Department of Human Resource will review a representative sample of performance evaluations and will also analyze compensation awarded based on a pay for performance to ascertain and measure program results. This review will provide information regarding supervisors who utilize the pay for performance program, and they in turn will be evaluated on their performance as it relates to this program. It is also projected to evaluate any increased productivity as a result of this program. MANAGEMENT DEVELOPMENT/TRAINING INITIATIVES Organizational Need: There is currently, no corporate management development program. Supervisors are generally promoted based on technical, rather than management skills . Managers are required to manage their human resource with principally on-the-job, or by experi- ences based on how they were managed. This provides a "seat of the pants" approach and may result in an inconsistent form of management . Greater resource demands with less dollars will require improved management skills to manage with less people, and be more productive. Program Response: An extensive city-wide training needs assessment was conducted to gather valuable information regarding organization needs within a management development context. This program is targeted to first-line supervisory personnel . The curriculum development is based on the needs assessment data. This data was received from three levels of the Corporation. It was compiled from employees, first line supervisors and their supervisors . This three tiered approach provided a comprehensive view of supervisory needs within Salt Lake City Corporation. The curriculum is currently being developed. The first phase is scheduled for May, 1989 . The intent is to provide the first phase using an outside consultant, but that future training programs will be taught by trained City employees. The supervisory training program is the first tier of *a comprehensive management development program. The annual Mayor ' s Management Confer- ence highlights key management issues directed to top level manage- ment. Other training initiatives will be developed for clerical , customer service, writing skills or other staff development needs identified by the City' s Training Committee. Sponsoring City-wide training events provides for maximum training impact in a cost-effective way. The approach is to broach training from a corporate, rather than individual way. This adds to the City' s ability to broker training at maximum participation and cost savings. For example, it is less expensive to hire a consultant to do writing training for $1000 and have 25 participants , than it would be to pay $200 per person to attend the same workshop. The difference is a 400% or $3000 ! Current economic constraints require well trained management and employees to provide optimal services to the citizens we are charged to serve. Evaluation: The first-line supervisory training program has a built- in evaluation component. The supervisor ' s supervisor evaluates trans- fer of skills learned from the training program to the work site in a project the student completes. Other training events will have specific evaluations at the conclusion of each event, as well as a cost benefit analysis of training in Salt Lake City Corporation. RISK MANAGEMENT REALIGNMENT Organizational Need: A recent audit conducted by the Salt Lake City Council indicated that greater emphasis should be targeted to the Risk Management function. Although the audit was prompted by an inquiry to determine if Risk Management should be contracted out, the audit clearly stated that it would not be in the City' s interest nor would it be cost effective. The employee benefits component was transferred to the Compensation and Classification Division thereby focusing the Risk Management function to protection against losses of property and assets of the City. Program Response: The Risk Management Division has set forth programs which will help to further fulfill its obligation to reduce the City' s liability in both life and property. 1. Meet with department heads to revised purpose and under- standing of risk management. 2. Place special emphasis on performance measures regarding corporate safety andworker compensation. Information derived will provide a base line information, and will enable the tracking of the impact of safety programs to reduced worker ' compensation claims . Additionally, high frequency areas of claims filed will also be addressed. 3 . Reevaluation of City insurance coverage. This will determine if there current level of insurance is adequate. 4 . Inspection of Fixed Assets in excess of $50, 000. 5 . Complete Risk Management Manual including information and procedures addressing Worker ' s Compensation, Safety, Insurance and other related areas. 6 . Create corporate Risk Management Committee comprised of departmental representatives to address safety, hazardous materials communications (required by federally madated "Right to Know" legislation, and control, risk assessment. 7 . In conjunction with IMS, build data resource regarding worker ' s compensation, vehicle accident reporting, governmental immunity, etc. 8 . Develop training for first line supervisors regarding risk management issue. 9 . Develop "Light Duty Policy" regarding employees injured on the job. 10. Prepare annual report regarding previous risk management activities. Evaluation Build a data base file to assess cost savings and current risk management profile on an annual basis. Completion of Risk Management Report to the Administration. Executive Summary - Council Staff Report Fire Department Policy Meeting March 9, 1989 * The number of engine company fire prevention inspections has dropped substantially due to the large amount of time required to perform the fire risk analysis. The Fire Department has been working for over a year on the development of its fire risk analysis program. This program is one element of the Master Plan process. * The Council may wish to request the department to develop a way to increase the number of engine company fire prevention and Uniform Fire Code permit inspections, while continuing the fire risk analysis program. * The Council may want to provide feedback to the department about the need to establish a Master Plan Task Force, including whether it would like that task force to include community residents. The Council may also want to request the department to establish a time frame for completing the Master Plan. * The Council may wish to provide feedback to the Fire. Department regarding the detail level provided about department service levels and programs in order to assist the Council in the budget process. * The Council may wish to request the Fire Department to provide Council with a list of the tasks to be accomplished to complete the consolidation of Police and Fire dispatching, including the expected time frames for the completion of each task. * The Council may wish to indicate to the Fire Department its interest in the timing of the implementation of the Uniform Fire Code inspection program. Council Staff Report Fire Department Policy Meeting March 9, 1989 At the Fire Department Policy Meeting last September, the Council asked the Fire Department to report to the Council regarding 1) the status of the Fire Department Master Plan, and 2) its goals for the year. In the Hughes Heiss report the audit suggested that the Fire Department involve the Council in the planning process for these two key areas. Council has received a report from the Fire Department, which accompanies this staff analysis. It includes an explanation of the fire risk analysis program, the goals and mission of the department, the status of the consolidated dispatch program, and the plans for the Uniform Fire Code permit program. Discussion of Issues Fire Risk Analysis • The Fire Department has been working for over a year on :che development of a fire risk analysis, as part of the development of a master plan. The Fire Department's response to the Hughes Heiss audit States: . . . the Department agrees that there is a need to develop a master plan to map out the City's long range fire protection needs. The master plan should include the following: a city-wide risk and hazard analysis; a formula or equation which can be employed to determine the appropriate level of fire resources; an analysis of the Department's facilities' needs for the next five years; training and information management needs within the department; and fire protection needs in the City. The Department suggests that a task force be established comprised of representatives from the Department, the Council, the Mayor's Office, and other City departments to develop the master plan. " (Fire Department Response to the Hughes Heiss Report (FDRHHR), dated May 17, 1988, Executive Summary, Page 3-4. ) The department is the process of inventorying target locations which have been identified as high risk hazards. About one thousand risk analysis inspections were conducted as part of this program in 1988, with a total of nearly 2,000 inspections conducted by station engine company staff. The department anticipates inspecting one thousand additional high hazard locations in 1989. Department management reports that the station engine companies had inspected 5,000 to 6,000 locations per year in prior years. The current hazard analysis inspection process assesses each location in terms of its water flow requirements and fire risk characteristics. This past year, -2- these inspections have not included assessing ..the extent to which these properties comply with Uniform Fire Code permit inspections. The Fire Department management does not intend to include that assessment in inspections to be conducted this year. As a result, the Fire Department inspections conducted by station engine companies are not anticipated to be a source of permit inspections by the Fire Department this year. The policy impact of the department's fire risk analysis inspection program is to reduce the level of these fire code compliance inspections during the period in which the fire risk analysis survey is_conducted. Council may wish to provide the Fire Department with feedback about the two policy options: 1) To conduct hazard inspections as currently being undertaken, at a level' of 1, 000 to 2,000 inspections per year. 2) To identify an inspection process that will allow the department to conduct more inspections. Staff recommend that Council ask the department to identify how it might increase the number of fire prevention and Uniform Fire Code inspections conducted by station engine companies while continuing its fire risk analysis program. As noted by the department, the Master Plan components include far more than the fire risk analysis alone. The department has provided a time line for the development of its Master Plan. A key element of that plan is the establishment of a task force to formally begin the development of this plan. Both the Hughes Heiss report and the department respons indicate that the task force should include knowledgeable representatives from a number of City departments. According to the National Fire Protection Association, the master plan process should also be community-based and should include citizen representatives. Task forces in many cities also include fire union representatives. Council may wish to provide specific feedback to the Fire Department regarding the establishment of this Master Plan task force. The fire risk analysis process has been lengthy to date, and the department has been involved in it since prior to the completion of the Hughes Heiss study. The Council may wish to suggest a time frame for the department in which to complete this process. Department Goals In its response to the Hughes Heiss report, the 'Department also writes "The Department acknowledges that an updated, formal understanding of goals and objectives is needed. "(FDRHHR, Main Report, Page 2) The goals provided by the Fire Department address many important issues. The development of an improved records management system and the development of the fire risk analysis program are given major emphasis. At the same time, the goals formalized by the department seem to be less detailed than Council may require to fully understand policy options and their service level ramifications. For example, goals seem to be extremely limited in the -3- following important areas: hazardous.materials, mid-management and supervisory training, employee relations, fire suppression and EMS response times, fire loss and fire containment, community relations, ' vehicle and property maintenance, and cost containment. These goals are directly related to the Council's budget and policy responsibilities. Although the department recognizes the importance of communicating its goals to the City Council, its goals may be of greater value if they were sufficiently complete and detailed to reflect the major service indicators and management priorities of the department. The need for specific service level information is identified as a key factor in Council policy making in the Hughes Heiss report. Council may. wish to request that the Fire Department provide it with more detailed information about departments goals, including specific goal statements that reflect results to be achieved and expected completion dates. Equating specific service level goals with accomplishments of prior years would make it simpler for the Council to make budget decisions regarding levels of funding. Consolidated Dispatch/Public Safety Communications The Fire Department consolidated dispatch program is progressing as noted in the department's staff report. The E-911 system is dependent upon valley-wide implementation, and is not expected to occur prior to May. Cross training of staff is underway. The department has proposed the establishment of a career ladder program to provide promotionai opportunities for dispatchers. The department has not provided information regarding the tasks yet to be completed in the consolidation of' the dispatch function. In September, Council requested that the department provide Council with a formal update on the technical issues required to implement a fully consolidated dispatch system in July, 1989. Council may wish to ask the department to provide it with a list of the remaining consolidation tasks to be completed and their projected time table. Councilmember Alan Hardman has also requested Council staff to arrange a presentation about dispatch trunking, in order to educate the Council about this technical element. Council staff are working with the Fire Department administration to determine the scope of this presentation and the participants who will take part. Uniform Fire Code Enforcement/Fire Prevention Bureau The Fire Department has established the goal of generating $22,500 in permit revenue through Uniform Fire Code inspections. At that point the department intends to hire another Fire Inspector from the revenue generated. Council authorized the department to hire an additional Fire Inspector last June. At that time the Council also formalized a legislative intent that the department generate enough revenue from hazardous materials inspections to fund this position. This position continues to be vacant and the revenue to fund it has not been generated by the department. According to Battalion Chief Sumner, a newly hired Fire Inspector could conduct six to eight Uniform Fire Code permit inspections per day. At an -4- average cost of $40 to $50 per inspection, a new Fire Inspector could generate about $1, 000 per week in permit inspection fees. Options available to the Council include the following: 1) Support the goal of the department to implement the proposed pilot program with the present staff. 2) Encourage the department to immediately hire a new Fire Inspector and request that the department immediately expand its permit inspection program. 3) Request the department to expand the role of the engine companies in Uniform Fire Code permit inspections. The advantage of options two and three is that they enable the City to reduce existing fire hazards while generating additional inspection revenue. Staff Recommendations 1) Encourage the Fire Department to implement its Fire Risk Analysis and Master Planning process, and to formally establish a Master Plan Task Force. Council may wish to provide feedback to the department regarding the possible composition of that task force and the time frame in which it would like to see the plan completed. 2) Request the Fire Department to expand the use of engine companies in fire prevention and Uniform Fire Code permit inspections, and to report on its goals for those inspections as part of the budget process. 3) Request the Fire Department to provide more specific information about department goals, including specific information about service levels and priorities, as part of the budget process. The purpose of providing this information is to assist the Council to equate service levels with funding for the department. 4) Request the Fire Department to provide an update regarding the tasks to be accomplished to complete consolidation of the public safety dispatching process, together with expected time frames for those tasks. 5) Authorize the Fire Department to immediately hire an additional Fire Inspector to conduct Uniform Fire Code permit inspections. -5- EXECUTIVE SUMMARY • With this document the fire department administration presents its mission, goals and performance objectives. We also present a sketch of fire risk analysis and show the ties to master planning. The department's communication division gives a brief progress update and outlines this year's communication intents. Lastly, the fire prevention bureau describes it's "fee for permit program. " -1- MISSION & GOALS I. The mission of the Salt Lake City Fire Department is to protect the lives and property of the Citizens of Salt Lake City from fire, hazardous materials and medical emergencies. Mission accomplished by: A. Fire Suppression, hazard mitigation and Rescue. B. Emergency Medical and Rescue. C. Fire Prevention, Code Enforcement, Arson Investigation, Public Education. II. Goals: A. DEVELOP AN ORGANIZATION TO EFFECTIVELY ADMINISTER AND MANAGE THE RESOURCES OF THE DEPARTMENT BY: 1. Developing a cost efficient organization by maximizing resource utilization and identifying additional income sources. 2. Improving communications both vertical and horizontal by: a. Interdepartmental ( 1 ) Improving activity reporting and information management tracking (March 89) • ( 2) Increasing visits to stations by administrative staff, improving communication and labor relations. (January 1989) b. Council Districts (1) Developing quarterly risk and hazardous materials inspection reports. Which identify needed suppression resources and hazard mitigation. (January 90 - December 90) (2) Developing quarterly activity reports of stations by council districts. (July 89) 3. Maintaining Master Calendar, which lists for the 1989 Calendar Year all activities, training programs, in-service programs and management training activities. 4. Developing a career ladder that is compatible and addresses needs of Police and Fire dispatch personnel. 5. Optimize the 'Police/Fire Dispatch system by cross training dispatch supervisors. -2- B. DEVELOP A SYSTEM FOR MINIMIZING THE IMPACT OF DISASTERS AND "OTHER" EMERGENCIES ON LIFE AND PROPERTY 1. Master Planning with Fire Risk Analysis a. Develop Fire Risk Analysis System (task force) (1) Identify system components (a) Mayor/City Council (b) Other City Departments ( 2) Identify needs, responsibilities and priorities of each component. ( 3) Identify existing and needed resources. (4) Develop Program establishing milestones & time-lines with available or projected resources. (5) All additional objectives are iterated in the Fire Risk Analysis Plan. 2. Continuing to enhance the new computer aided dispatch system. 3. Bringing the Enhanced 9-1-1 system on line. C. MAINTAIN AN EFFECTIVE EMERGENCY MEDICAL SERVICE (EMS) BY: 1. Analyzing fee structure and impacts for "Pay Paramedic Service" and preparing a feedback report to Mayor/Council. (December 1989) 2. Tracking training hours, certifications and proficiency levels of individual members, by utilizing enhanced information management systems. (July 1989) 3. Provide ACLS recertification training testing. (April 89) 4. Implement mega code simulation training and testing. (July 89) 5. Maintain EMS grant to the Department for recertification, new equipment, and continuing education. -3- D. PROVIDE AN EFFECTIVE FIRE PREVENTION AND PUBLIC EDUCATION SYSTEM BY: 1. Increase FPB revenue by $20,000 each year for three years with the implementation of fee for service (permit) inspections. 2. Developing and implementing mail-out self inspection program for all priority five inspections. (December 1989) • (Pilot Program will start April 89) 3. Implementing computerized premise record keeping system for monitoring overall work load, scheduling and tracking inspection work. (July 1989) • • • -4- FIRE RISK ANALYSIS Fire risk analysis is an objective process comparing the resources required to fight a fire with the resources which are available. The information for this comparison revolves around two pieces of information: First, the amount of water required to extinguish a fire in a specific building. Second, the capability of the Fire Department and built in fire protection systems to deliver that amount of water. If the Fire Department and other existing fire protection systems are unable to deliver the required water, the building is at risk. BENEFITS TO THE CITY The analysis will determine the amount of- fire protection the City has and if that protection can be delivered rapidly enough to be effective. Fire risk analysis will make the different city and state departments aware of their fire protection responsibilities. This analysis will define the fire protection burden that the private businesses must assume. It will identify the buildings and businesses at risk. It will also show the risk from close exposure to these buildings. It will determine the possible impact of lost life and lost value to the community. Short and long range planning can be based on fire risk criteria. BENEFITS TO THE COUNCIL Fire risk analysis will show the existing fire suppression systems and help identify additional needed systems in each council district. Identified risk allows evaluation of impact in areas of life, economics and community values in each council district. • Knowledge of impact identifies degree of risk in each council district. Planners then rank protection programs according to cost and degree of risk in these districts. -5- • IMPLEMENTATION PLAN FOR FIRE RISK ANALYSIS OBJECTIVE 41- Fire Administration will develop a master planning task force. This task force will identify the city department's risk analysis responsibilities and needs. The task force will coordinate with the following Departments: City Council/Mayor Municipal Airport Building Department Engineering Department Water Department Planning and Zoning Department Police Public Shops Private Developers OBJECTIVE 42 The task force will isolate program requirements and identify cost and time impact on staff resources. The task force will prioritize Needs and establish _ time lines and program milestones. OBJECTIVE 3 • Crews will complete all target inspections in their response districts and will then help complete remaining inspections in other districts. Reports will notify response chiefs and department administration of completed inspections by each fire crew. The administration will -evaluate the quality of target inspections during the quarterly station inspection. OBJECTIVE_44 When crews complete the target inspections, the administration will identify the fire management areas. The homogenous quality of the targets and the number of targets will define the size and scope of these areas. (This allows the department to assign an average needed fire flow for the area) Fire management teams will analyze risk for the entire fire management areas by inspecting and evaluating a representative sample of these targets. OBJECTIVE 4 5 Fire administration will develop quarterly risk reports.. These reports will define risk in council and response districts. These reports will include average needed fire flow for the Fire Management Areas, the existing and needed fire suppression resources (Staffing, apparatus & response times) and the existing and needed "built in" suppression resources. (Sprinkler systems, code enforcement, enclosed stairways and etc. ) When the program is completed, the administration will give summary reports with impact analysis. -6- OBJECTIVE #6 Fire administration will develop a committee from fire prevention and operations personnel. This committee will develop inspection criteria for life risk analysis. They will also identify the level of code knowledge required for these inspections. The administration will review these provisions and inspection needs. They will develop a plan to provide the fire risk analysis teams with the needed resources. This is a critical issue because of the code knowledge needed and the limited fire prevention resource. Operations personnel may require extensive training. OBJECTIVE #7 • Administration will select three teams to pilot the Fire Risk Analysis Program. These teams will coordinate with the provision committee and evaluate inspection methodology. It is estimated that the pilot program will exist 12 months before the Fire Risk Analysis program begins. The administration will evaluate the program. OBJECTIVE #8 The fire department will begin Fire Risk Analysis Program with continued evaluation from the master planning task force. OBJECTIVE #9 The provision committee will present reports to the master planning task force identifying risk and needed code legislation. Where Risk cannot be mitigated, responsible agencies and the task force will plan contingencies. OBJECTIVE #10 The task force will analyze risk impact and identify the amount of risked value and will report this to City Administration. • • -7- Time Lines I 1989 I 1990 I - - • - -- - JFMAMJJASON- DJFMAMJJASON-D -- - A E A P A U U U E C O E A E A P A U U U E C O E N B R R Y N L G P T V C N B R R Y N L G P T V C URCI EYUTOEEURCI EYUTOEE AUHL SEBMMAUHL SEBMM R A TMEBBRA TMEBB Y R BREEYR BREE Y E RRY E R R R R #1 Identify Needs • I I #2 Prioritize Needs I I #3 Complete Targets I I #4 Identify Fire Management • Areas I I #5 Develop Risk Reports I I #6 Committee to identify inspection provisions for Life Risk I #7 Pilot Fire Risk Program I I #8 Fire Risk Program I I #9 Identify needed Code legislation I I #10 Risk Impact Analysis -8- Public Safety Communications The physical move of Fire and Police Dispatch- and Communications to 315 East- 200 South is complete. All systems are functional on the new site including a recently purchased Computer Aided Dispatch system. Software to support that system is still in the developmental stages, but the basic program is up and running. The Enhanced 9-1-1 system is in the final stages of installation. It should be noted that other 9-1-1 factions in the valley will hold us up. The system cannot come on line until all portions of it are in readiness. My best estimate is that completion of the County Sheriff, South Valley (VECC) and Data Base proofing will not occur until May 1989 or later. Until then the present 9-1-1' system must remain in place. The move toward streamlining Police/Fire Dispatch is well under way. Through attrition the number of dispatch supervisors were reduced by three people. This brings the number of first line supervisors to four. These remaining four are cross training to provide expertise in both Police and Fire Department matters. Simple arithmetic shows that five supervisors are needed to provide 24 hour supervision and cover vacations -and other leaves of absence. E9-1-1 needs and cross training personnel, are presenting some interesting challenges. These challenges will be best met, in part, by establishing a new career ladder. The career ladder must address the priorities of the Police and Fire Departments while being compatible with both. In first level of expertise- entry level personnel train as E9-1-1 Operator/Call Takers. The second level train as either Police or Fire Dispatchers. The third level cross train into their counterpart, Police/Fire area. Cross training is a necessary prerequisite for becoming a Dispatch Supervisor. * The intended end result will reduce costs by using common supervisors and having cross trained dispatchers who fill in where they are most needed. To that end, a senior Police Dispatcher is presently training in the Fire Dispatch area. She will help us identify possible problems so they are properly addressed. The attached organizational chart reflects an overview of the intended structure. * This scenario is slightly different than the one proposed a year ago. The adjustments compensate for the training time frames. Also, research shows that this configuration is working well for many major cities. -9- r ' FIRE PREVENTION BUREAU SUMMARY: Fire Prevention Bureau ( EPB) revenue is presently $6,000. 00/year. By using a permit process to regulate selected businesses, and charging a fee for service for permit inspections, the Fire Prevention Bureau expects to increase revenue at the rate of $20,000. 00 per year over a period of three years. Planning has been completed for a pilot group of permits, and implementation has begun. The EPB projected annual revenue from these permits is $22, 500.00. Completion date for this pilot program is December 31, 1989. There is no specific plan for further permits. Planning for further permits will be done concurrently with implementation of the pilot group. The EPB goal is to increase revenue at a rate of $20,000.00 per year, by enacting new permits. BACKGROUND AND DISCUSSION In January through March, 1988, Battalion Chief Sumner was a member of the Regulatory Fee ad hoc committee. This committee was chaired by Patrick Sorensen of the Mayor's office. The committee identified costs of services provided to specified types of businesses in Salt Lake City. The cost information was then used to establish the amount of regulatory fees charged to each of the types of businesses. Some of the cost of inspection services provided by Salt Lake City Fire Department, therefore, is being recovered through regulatory fees. To provide equity and consistency in fee for service, it was decided to charge fees for Fire Department service by regulating selected businesses through a permit process administered by the Fire Prevention Bureau. A permit from the Fire Department would be required to operate certain types of businesses identified in the Fire Code. To obtain a permit, the business would be required to pay a permit fee and pass an inspection. Permit fees, like regulatory fees, would be based on the cost of the service provided. The Fire Department's decision to charge reasonable fees for inspections was reinforced by the City Council's legislative intent. A fee schedule was included in the 1988 Uniform Fire Code when it was presented for adoption. On December 16, 1988, the UEC was submitted for Council Action. On January 10, 1989, Council referred it back to the Fire Department, City Attorney, and Council Staff to make changes in the language concerning permits and permit fees, and to add back permits that had been deleted by amendment. The Ordinance has been revised to the satisfaction of the Fire Department, City Attorney, and Council Staff. -10- The Fire Marshal plans to begin at once to implement selected permits, as a pilot project to establish procedures and gain experience in using permits in fire prevention regulation. The implementation process for each permit will follow the same sequence: 1. Rules and administrative procedures will be written, detailing procedures for permit application and subsequent inspection and approval. 2. Businesses and Buildings requiring the permit will be identified, and notified of the permit requirement. 3. Permit applications will be received and processed according to the Rules and administrative procedures. 4. The regulatory process will be evaluated and revised as necessary. It is estimated that implementation of all the permits in the pilot project will be under way within calendar year 1989, and that by December, 1989, Fire Prevention Bureau revenue will be sufficient to meet the cost of another FTE in the Fire Prevention Bureau. With this experience and revenue, the Fire Department will then be prepared to propose further permit fees, make further revenue projections, and request additional staffing to meet the increased service level. • • -11-