HomeMy WebLinkAbout2023-07-12 City Council Special Meeting
COTTAGE GROVE CITY COUNCIL July 12, 2023
12800 RAVINE PARKWAY SOUTH
COTTAGE GROVE, MINNESOTA 55016
SPECIAL MEETING - 6:00 PM
TRAINING ROOM
1 Call to Order
2 Roll Call
3 Regular Agenda
A 2024 Budget Workshop/Tax Levy
Staff Recommendation: Provide staff with feedback and direction regarding the 2024 Operating Budget and
2024 Property Tax Levy.
B Cottage Grove Fire Department Staffing Plan
Staff Recommendation: Receive Staffing Plan recommendations and provide feedback.
C Dissolution of Fire Relief Association
Staff Recommendation:
4 Adjournment
1
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City Council Action Request
3.A.
Meeting Date 7/12/2023
Department Finance
Agenda Category Action Item
Title
2024 Budget Workshop/Tax Levy
Staff Recommendation
Provide staff with feedback and direction regarding the 2024
Operating Budget and 2024 Property Tax Levy.
Budget Implication N/A
Attachments
1. 2024 Budget Workshop-Tax Levy
1
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Budget Comparison Report
Cottage Grove
Group Summary
Comparison 1Comparison 1Comparison 2Comparison 2
Budgetto Parent Budgetto Comparison
Parent Budget%%
Budget1 Budget
20212022202320232024Increase /2025Increase /
Total AcvityTotal AcvityYTD Acvity20232024(Decrease)2025 Fall 2023(Decrease)
Through Jun
Object
Fund: 290 - HERO CENTER OPERATIONS
Category: 3310 - INTERGOVERNMENTAL
3359 - OTHER GOV AID0.000.000.000.000.000.000.000.000.00%0.00%
Total Category: 3310 - INTERGOVERNMENTAL:0.000.000.000.000.000.00%0.000.000.00%0.00
Category: 3400 - CHARGES FOR SERVICES
3572 - VENDING SALE5,155.654,935.822,271.356,000.000.006,000.000.006,000.000.00%0.00%
3581 - PRE-TRAINING200.000.000.00600.00400.001,000.000.001,000.0066.67%0.00%
3582 - SHOOTING RANGES169,443.02216,408.3388,273.50190,000.0040,000.00236,900.006,900.00230,000.0021.05%3.00%
3583 - CLASSROOM(S)30,705.0026,547.507,295.0035,000.00-5,000.0030,900.00900.0030,000.00-14.29%3.00%
3586 - REALITY BASED INSIDE8,600.0015,182.008,682.0020,000.001,000.0021,630.00630.0021,000.005.00%3.00%
3587 - REALITY BASED OUTSIDE3,900.004,814.502,255.008,000.006,000.0014,420.00420.0014,000.0075.00%3.00%
3588 - MEMBERSHIPS281,647.00368,204.61379,250.75379,250.0011,380.00402,350.0011,720.00390,630.003.00%3.00%
3589 - AMMUNITION53,238.8318,863.517,476.6230,000.00-10,000.0021,630.001,630.0020,000.00-33.33%8.15%
3591 - HOSTED COURSE REGISTRATION34,473.7346,944.9510,823.9140,000.000.0040,000.000.0040,000.000.00%0.00%
3592 - SIMULATOR2,080.002,800.00996.005,000.000.005,150.00150.005,000.000.00%3.00%
3593 - RTR MATS ROOM-200.000.001,760.004,000.003,000.007,210.00210.007,000.0075.00%3.00%
3596 - RENTAL OF EYE/EAR PROTECTION427.77174.0015.00500.00-100.00400.000.00400.00-20.00%0.00%
Total Category: 3400 - CHARGES FOR SERVICES:765,030.00589,671.00704,875.22509,099.13718,350.0046,680.006.50%787,590.0022,560.002.95%
Category: 3809 - INVESTMENT INTEREST
3810 - INVEST INTEREST-697.25-8,940.931,839.990.000.000.000.000.000.00%0.00%
Total Category: 3809 - INVESTMENT INTEREST:-697.25-8,940.931,839.990.000.000.00%0.000.000.00%0.00
Category: 3812 - MISCELLANEOUS
3590 - PARTNER REVENUE0.000.000.00100,000.0033,763.00135,559.001,796.00133,763.0033.76%1.34%
3594 - SALE OF BRASS20,511.0019,980.706,248.7524,000.000.0024,000.000.0024,000.000.00%0.00%
3812 - DONATE & CONTRI29,000.000.000.000.000.000.000.000.000.00%0.00%
3816 - REFUND & REIMBRS1,036.4874.00-2,399.970.000.000.000.000.000.00%0.00%
3829 - MISC - OTHER0.00347.000.0035,440.00360.0037,600.001,800.0035,800.001.02%5.03%
3830 - CASH OVER/UNDER159.5515.2314.170.000.000.000.000.000.00%0.00%
Total Category: 3812 - MISCELLANEOUS:193,563.0050,707.0320,416.933,862.95159,440.0034,123.0021.40%197,159.003,596.001.86%
Category: 4100 - PERSONAL SERVICES
4100 - SALARY-FULL TIME158,487.47175,748.65110,388.50265,500.0014,600.00294,100.0014,000.00280,100.005.50%5.00%
4120 - SAL-P.T./TEMP53,738.8062,655.0030,746.1075,200.004,000.0083,200.004,000.0079,200.005.32%5.05%
7/7/2023 9:36:48 AMPage 1 of 4
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Budget Comparison Report
Comparison 1Comparison 1Comparison 2Comparison 2
Budgetto Parent Budgetto Comparison
Parent Budget%%
Budget1 Budget
20212022202320232024Increase /2025Increase /
Total AcvityTotal AcvityYTD Acvity20232024(Decrease)2025 Fall 2023(Decrease)
Through Jun
Object
4141 - PERA11,886.5613,181.159,101.1719,900.001,100.0022,000.001,000.0021,000.005.53%4.76%
4142 - FICA15,206.3817,462.2810,411.3626,100.001,400.0028,800.001,300.0027,500.005.36%4.73%
4144 - HEALTH INSURANCE26,319.9627,750.0019,750.0239,500.00-3,500.0039,600.003,600.0036,000.00-8.86%10.00%
4148 - WORKERS COMP1,100.042,040.003,049.986,100.00-700.005,600.00200.005,400.00-11.48%3.70%
Total Category: 4100 - PERSONAL SERVICES:449,200.00266,739.21298,837.08183,447.13432,300.0016,900.003.91%473,300.0024,100.005.37%
Category: 4200 - COMMODITIES
4210 - OP SUPPLY-OTHER9,962.259,438.564,112.8312,000.000.0012,000.000.0012,000.000.00%0.00%
4211 - MOTOR FUELS0.000.0054.28800.000.00830.0030.00800.000.00%3.75%
4217 - CLOTHING/UNIFORM849.00518.59383.251,000.001,110.002,110.000.002,110.00111.00%0.00%
4280 - CAPITAL OUTLAY <$5,00030,923.883,799.997,626.8245,000.00-5,000.0040,000.000.0040,000.00-11.11%0.00%
Total Category: 4200 - COMMODITIES:41,735.1313,757.1412,177.1858,800.00-3,890.00-6.62%54,940.0030.000.05%54,910.00
Category: 4300 - CONTRACTUAL SERVICES
4300 - PROF SERVICES5,565.107,721.3710,199.0011,000.00500.0011,845.00345.0011,500.004.55%3.00%
4302 - LEGAL SERVICE2,160.5032.000.003,000.000.003,000.000.003,000.000.00%0.00%
4305 - FEES FOR SERVICE13,856.6716,573.397,606.3617,000.0040.0017,550.00510.0017,040.000.24%2.99%
4309 - CREDIT CARD FEES7,296.398,795.523,757.0510,000.000.0010,610.00610.0010,000.000.00%6.10%
4310 - COMMUNICATION2,877.202,893.181,060.633,600.00-1,980.001,620.000.001,620.00-55.00%0.00%
4311 - POSTAGE100.62161.9451.51200.000.00200.000.00200.000.00%0.00%
4321 - DATA PROCESSING11,759.0715,405.9921,802.0243,400.006,600.0052,500.002,500.0050,000.0015.21%5.00%
4340 - PRINTING295.29101.91215.64400.000.00400.000.00400.000.00%0.00%
4341 - ADVER/PUBLISH2,549.753,968.271,414.986,000.000.006,000.000.006,000.000.00%0.00%
4350 - INSURANCE CHARGE9,999.9610,380.005,650.0211,300.00340.0011,990.00350.0011,640.003.01%3.01%
4360 - UTILITIES96,649.63130,852.4070,178.29116,500.0028,500.00152,250.007,250.00145,000.0024.46%5.00%
4372 - MAINT-REPAIR/BLD80,345.65144,962.4030,580.3668,150.0018,850.0089,610.002,610.0087,000.0027.66%3.00%
4375 - CHARGE-FLEET MNT0.00231.2050.011,500.0050.001,600.0050.001,550.003.33%3.23%
4380 - RENTAL/LEASE4,227.663,940.811,387.134,200.000.004,325.00125.004,200.000.00%2.98%
4401 - DUES & SUBS636.00799.00509.881,100.000.001,165.0065.001,100.000.00%5.91%
4403 - TRAVEL/TRAIN/CON2,690.022,506.031,990.045,000.000.005,300.00300.005,000.000.00%6.00%
4405 - CLEAN/WASTE REMV35,741.4754,056.4319,827.4737,500.0040,520.0064,130.00-13,890.0078,020.00108.05%-17.80%
4434 - SPECIAL EVENTS0.0014,921.020.0020,000.00-5,000.0015,000.000.0015,000.00-25.00%0.00%
4438 - PRO/MISC RESALE17,713.7212,653.707,145.6225,000.00-10,000.0015,000.000.0015,000.00-40.00%0.00%
Total Category: 4300 - CONTRACTUAL SERVICES:463,270.00294,464.70430,956.56183,426.01384,850.0078,420.0020.38%464,095.00825.000.18%
Category: 4500 - CAPITAL OUTLAY
4530 - MACH & EQUIPMENT0.000.002,552.5510,000.00-10,000.000.000.000.00-100.00%0.00%
Total Category: 4500 - CAPITAL OUTLAY:0.000.002,552.5510,000.00-10,000.00-100.00%0.000.000.00%0.00
7/7/2023 9:36:48 AMPage 2 of 4
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Budget Comparison Report
Comparison 1Comparison 1Comparison 2Comparison 2
Budgetto Parent Budgetto Comparison
Parent Budget%%
Budget1 Budget
20212022202320232024Increase /2025Increase /
Total AcvityTotal AcvityYTD Acvity20232024(Decrease)2025 Fall 2023(Decrease)
Through Jun
Object
Category: 4999 - TRANSFERS OUT
4700 - TRANSFERS OUT0.000.0017,194.9834,390.001,410.0037,600.001,800.0035,800.004.10%5.03%
Total Category: 4999 - TRANSFERS OUT:0.000.0017,194.9834,390.001,410.004.10%37,600.001,800.005.03%35,800.00
Total Fund: 290 - HERO CENTER OPERATIONS:36,741.74-27,199.56116,004.22-42,550.00-2,037.004.79%-45,186.00-599.001.34%-44,587.00
Report Total:36,741.74-27,199.56116,004.22-42,550.00-2,037.00-45,186.00-599.00-44,587.004.79%1.34%
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Budget Comparison Report
Fund Summary
Comparison 1Comparison 1Comparison 2Comparison 2
Budgetto Parent Budgetto Comparison
Parent Budget%%
Budget1 Budget
20212022202320232024Increase /2025Increase /
Total AcvityTotal AcvityYTD Acvity20232024(Decrease)2025 Fall 2023(Decrease)
Through Jun
Fund
290 - HERO CENTER OPERATIONS36,741.74-27,199.56116,004.22-42,550.00-2,037.004.79%-45,186.00-599.001.34%-44,587.00
Report Total:36,741.74-27,199.56116,004.22-42,550.00-2,037.00-45,186.00-599.00-44,587.004.79%1.34%
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2024 BUDGET ADDITIONS
Dept
RequestRecommended
Description
Item #FundProgramDepartmentCost
Compensation study
1 1000395-4300Employee Programs 45,000 45,000
0110 Total 45,000 45,000
Warning siren-9500 Block of Military
2 1000400-4530Emergency Mgmt 39,500 -
400 Total 39,500 -
Add CSO Hours
4 1000577-4120Police 110,000 -
Security fence around PS parking lot
5 1000500-4530Police 140,000 140,000
500 Total 250,000 140,000
Deputy Chief-Fund in 2025 if PS Funds available
6 1000800-4100Fire 149,300 -
Car inserts for two fire admin squads
8 1000800-4280Fire 12,000 -
Water rescue equipment -50% with EMS
9 1000800-4280Fire 11,000 -
Annual mental health check
10 1000800-4300Fire 5,400 5,400
Heated sidewalk at CFS
11 1000800-4372Fire 96,400 -
Increase in cleaning costs
12 1000800-4405Fire 9,500 9,500
Fitness equipment at CFS
13 1000800-4530Fire 26,000 -
SCBA replacement (37)-Fund in 2025 with grant or Public
Safety Funds
14 1000800-4530Fire 446,050 -
800 Total 755,650 14,900
Salt price increase
15 1001290-4210Snow and ice removal 31,980 31,980
300 additional tons of salt
16 1001290-4210Snow and ice removal 28,465 -
1290 Total 60,445 31,980
Increase in cleaning costs
17 1002005-4405Public Works 5,620 5,620
2005 Total 5,620 5,620
Building maintenance increased costs
19 1002500-4372City Hall 33,500 33,500
Copier and folding machine increased costs
20 1002500-4380City Hall 5,800 -
Increase in cleaning costs
21 1002500-4405City Hall 8,910 8,910
2500 Total 48,210 42,410
50/50 Employee to FT Parks staff-Revenue Neutral
23 1500-4120Park maintenance 46,200 46,200
Training and travel expenses
24 1500-4403Park maintenance 6,700 -
1500/1516 Total 52,900 46,200
Glacial Valley Park Supervised Playgrounds-Revenue Neutral
25 2300-4121Recreation 32,640 32,640
Recreation and Arena Positions-Fund Revenue Neutral portion
$40,000
25.5 2300-4100Recreation 57,000 40,000
2300 Total 32,640 32,640
FUND 100
100 Total 1,289,965 358,750
7/6/2023
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2024 BUDGET ADDITIONS
Dept
RequestRecommended
Description
Item #FundProgramDepartmentCost
Recreation and Arena Positions
25.5 2503700-4100Ice Arena (17,000)
50/50 Employee to FT Parks staff
26 2503700-4100Ice Arena 46,200 46,200
Rental skates
27 2503700-4280Ice Arena 5,000 5,000
North rink party lights (design, purchase, install)
28 2503700-4540Ice Arena 30,000 30,000
FUND 250
250 Total 64,200 81,200
Cart path repairs and replacement
29 2552105-4530Golf Course 20,000 20,000
Carpet, banquet chairs, and dance floors
30 2552140-4530Golf Course 90,000 90,000
Replacement of rough mower
31 2552105-4530Golf Course 100,000 100,000
FUND 255
255 Total 210,000 210,000
Replace Service Body Truck (2011 Model)
32 6103000-4530Water 150,000 150,000
FUND 610
610 Total 150,000 150,000
Water rescue equipment -50% with Fire
34 6600600-4280EMS 11,000 -
Replace cardiac monitors & AEDs-Lease
35 6600600-4530EMS 187,300 52,000
3 Ventilators
36 6600600-4530EMS 58,950 58,950
FUND 710
660 Total 257,250 110,950
Increased operating supplies
37 7101700-4270Fleet 80,000 80,000
Increased operating supplies
38 7101700-4370Fleet 180,000 180,000
New subscriptions for vehicle diagnosing
39 7101700-4400Fleet 7,400 7,400
Training budget
40 7101700-4530Fleet 3,100 3,100
Scrubber/sweeper replacement-Revaluate in 2025
41 7101720-4530Fleet 85,000 -
FUND 710
710 Total 355,500 270,500
42 7200380-4321IT 71,000 71,000Watchguard and Video Evidence
43 7200380-4280IT 117,000 117,000Toughbooks
FUND 720
720 Total 188,000 188,000
Grand Total 2,514,915 1,369,400
TOTAL FUND 100
1,289,965 358,750
1,224,950 1,010,650TOTAL ALL OTHER FUNDS
7/6/2023
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City of Cottage Grove
100$45,000
0395
4300
Compensation Study
Compensation Study- this would update the compensation study done in
2020 ahead of the 2025 labor contract negotiations
potential loss of employees if not adequately compensated relative to
the market.
Joe Fischbach05/16/23
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City of Cottage Grove
100$110,000
0577
4120
Add Community Service Officer staffing for additional hours.
Increase staffing from 1 CSO to 2 CSO's per shift, 7AM-11PM, 7
days/week (+5,000 hrs). Budget offset by $5,000 in fingerprint revenues.
CSO's are a hugely successful recruitment tool for future police officer
openings and play an integral role in operations of the patrol division.
Quality of candidates could diminish, timeliness of call response for low
priority calls will increase, and additional parks will have less patrol.
Aly Renschen06/05/23
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City of Cottage Grove
100$140,000
0500
4530
Add security fence around Public Safety parking lot.
Install perimeter fencing with gates for the Public Safety parking lot in
order to limit public access. Material and labor costs = $112,000.00 and
electrical = $28,000.00.
Restrict access as we have had on a number of occasions groups
filming and documenting personal vehicles in addition to damaged tires
from nails being placed in the entrance and exit area.
Aly Renschen06/05/23
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211%:7-511
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211%42-:91
23:1
5321
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211%6-911
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211%9-:21
3611
5516
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361%57-311
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211%7-811
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5514
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211%43-751
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62%68-111
3411
5226
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361%57-311
4811
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361%6-111
4811
5391
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361%41-111
4811
5651
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Kpsebo!Ijsnbo17018034
Qbhf!82!pg!276
City of Cottage Grove
255$20,000
2105
4530
Improve bad areas on cart paths due to tree roots & cracks/potholes
Continue to improve areas of the cart paths that have broke down over
time.
Customer experience is impacted.
Dennis Neitz06/06/23
Qbhf!83!pg!276
City of Cottage Grove
255$90,000
2140
4530
Carpet, Banquest Chairs, & Dance Floors
Approx. $90,000 to stay ahead with customer trends and enhanced look
of venue to ensure long term success.
Customer experience is impacted.
Dennis Neitz06/06/23
Qbhf!84!pg!276
City of Cottage Grove
255$100,000
2105
4530
Rough mower has aged and needs replacement
Approx. $100,000 for a new rough mower that mows a majority of the
golf course on a daily basis.
Customer experience is impacted.
Dennis Neitz06/06/23
Qbhf!85!pg!276
Djuz!pg!Dpuubhf!Hspwf!
!
721%261-111
4111
5641
Sfqmbdf!Tfswjdf!Cpez!Usvdl!)$261:*
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Djuz!pg!Dpuubhf!Hspwf!
!
771%22-111
1711
5391
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771%298-411
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771%69-:61
1711
5641
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821%91-111
2811
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City Council Action Request
3.B.
Meeting Date 7/12/2023
Department Public Safety
Agenda Category Action Item
Title
Cottage Grove Fire Department Staffing Plan
Staff Recommendation
Receive Staffing Plan recommendations and provide feedback.
Budget Implication N/A
Attachments
1. CGFD Staffing Plan Report Council 07.06.2023
1
Qbhf!236!pg!276
Cottage Grove Fire Department
Staffing Plan Recommendations
July2023
Respectfully submitted for review and completion by
the Cottage Grove Fire Department Staffing Committee
Martin ScheererCouncil Member Tony Khambata
Charles A. WeinsteinPublic Safety Director Peter Koerner
Ethical Leaders in ActionDeputy Director/Fire Chief Rick Redenius
Captain Nick Arrigoni
Captain Peter Fischer
Firefighter/Paramedic Kiel Kwiatkowski
Firefighter/EMT Mike McCoy
P.O. Box 14714
Minneapolis, MN 55414
www.ethinact.com
Qbhf!237!pg!276
Cottage Grove Public Safety Fire Department
Staffing Plan
Page 2
Table of Contents
Introduction 3
Current Situation and Implications 5
Recommendation Overview 17
Phase 1: Stabilization 17
Phase II: Option 1 Service Excellence 18
Phase II, Option 2 Cost Containment Emphasis 20
Phase III Ongoing Management 21
Conclusion/Next Steps 21
ELA Message 21
Appendix: Additional Supporting Data 22
Qbhf!238!pg!276
Cottage Grove Public Safety Fire Department
Staffing Plan
Page 3
Introduction
The City of Cottage has demonstrated a great dedication to the Grove Fire Department (CGFD) and has invested much in
the department over the last five years. This impressive investment has included the building of a Central Fire Station in
which was built to support 24/7 staffing with state-of-the-art building features with specific features to support
firefighter training such as a robust training room and training area. The station also hosts features to promote
firefighter wellness with a dedicated fitness area, gear area with ventilation system and a dorm area for sleeping. The
City has also demonstrated its investment with the purchase of a state-of-the-art Ladder truck to support firefighting
multifamily and large commercial structures. This investment in buildings and
apparatus has been teamed with healthy budgets to support fire and EMS training, personal protective equipment (e.g.
-innovative EMS equipment and so on. With this great investment in the
department from the City as lead by the City Council, the fire department presents its recommendations for staffing
needs to continue and reflect this great investment in the department to best serve the community, residents and
visitors of Cottage Grove. The scope of these recommendations addresses front-line staffing needs (i.e. shift-based) only.
These recommendations do not address non-shift-based positions (e.g. chief level or support staff) and all staffing
recommendations must be taken within context of other department needs such as apparatus, facilities and maintaining
healthy and supportive operation budgets. It is the recommendation of the staffing group personnel needs should be
prioritized, if necessary, over apparatus and facility needs.
The CGFD has experienced several years of increased call volume and has not increased staffing to meet this demand for
service. The City of Cottage Grove last added on-shift staff in 2017 which was the last phase of the transition from a
-MS program that was fire department-based. At that time, the department reached
-time firefighters and authorized 55 part-time staff positions. Demand for service continues
to grow along with the City of Cottage Grove, and the Fire Department remains committed to delivering excellent
service, cost-effectively, to meet the needs of the community. At the same time, the City remains appropriately
committed to containing costs for taxpayers, a commitment that the Fire Department fully supports. Therefore, in 2022,
CGFD formed a committee to study the situation and its challenges, and to make specific, cost-bound recommendations
to the City Council concerning staffing needs to uphold service standards and protect the community without undue
burden on taxpayers. The committee engaged Ethical Leaders in Action to facilitate some aspects of its work.
This report presents a data-driven picture of the growing gap between demand for CGFD services and the capacity of the
summarized as follows:
This plan considers the needs for optimizing services for the City of Cottage Grove. The plan does not consider
the EMS needs of Newport, St. Paul Park or Grey Cloud Township. While they represent a number of calls for
service, all population-based staffing needs are based on Cottage Grove only.
Reduce burden of part-time firefighters with increased full-time staffing to allow for sustainment of combination
fire staffing model.
Preserve the combination (full-time/part-time) deployment model of the CGFD.
Sustainable recruitment of part-time firefighters
The plan is presented in three phases to allow for a manageable and sustainable staffing plan.
Phase I: Increase staffing of full-time shift utilization of part-time personnel as soon as possible to stabilize
capacity in the face of immediate and short-term demand.
Increase full-time staffing further in future years to meet the needs for emergency response and community risk
reduction, and to assure that the CGFD, like the city as a whole, remains an employer of choice.
Qbhf!239!pg!276
Cottage Grove Public Safety Fire Department
Staffing Plan
Page 4
o!Alternative plan: the committee recognizes that there must be a balance between service capacity and
cost. Therefore, we also present an alternative scenario that offers lower cost than the recommended
growth plan.
curtail other strategic efforts.
Phase III: Ongoing management to maintain service quality, and to support city-wide financial planning to match
sustainable growth.
facilitators for ease of use by decision-makers. The body of this report is intended to articulate a fact-based argument
with enough support to substantiate that argument. The appendix contains a much larger body of research and analysis
e useful for those seeking to better understand the assertions
made on the following pages.
Qbhf!23:!pg!276
Cottage Grove Public Safety Fire Department
Staffing Plan
Page 5
Current Situation and Implications
The mission of the Cottage Grove Fire Department begins with comprehensive Community Risk reduction to promote
community health and safety aimed at preventing fires, avoidable injury and emergency incidents, and preventable
illness. The CGFD is also called on to respond, with partner agencies, to all-hazard emergencies, including fires and calls
for emergency medical services. In fact, CGFD is the primary agency responsible for providing emergency medical
services (EMS) to the City and some surrounding communities. CGFD personnel pursue this multifaceted mission with
pride, 24 hours a day, every day.
The CGFD transitioned from a part-time agency to a combination agency employing both full-time and part-time
responders beginning in the mid-2010s with its current staffing levels being established in 2017. The department
12 full-time firefighters and authorized 55 part-time staff positions. The actual roster of
active part-time firefighters has long been below 50 due to availability of qualified candidates; a more typical roster is
25-30 personnel ready for duty. Part-time personnel serve in shifts with the full-time personnel and respond to major
incidents on demand.
Summary of Current Staffing Situation
Front-line emergency response personnel are deployed on three, 24-hour shifts (A, B and C shift). Each shift consists of:
!One full-time fire captain,
!three full-time firefighter paramedics,
!two 24-hour positions filled by multiple part-time firefighter/EMTs, and
!one 12-hour position filled by multiple part-time firefighter/EMTs.
--time position actually requires three people to cover all three shifts (one on each shift.) Each 24
hours of part-time coverage actually requires seven personnel, due to work hour limitations required to maintain part-
time status (36 hours per month). In addition, firefighters are actually available somewhat less than 24 hours on each
shift due to work time reduction under the Fair Labor Standards Act (FSLA).
Demand for Service is Increasing.
While full-time staffing has been static, demand has increased markedly. Between 2017 and 2022, the department has
seen a 47 percent increase in call volume, and a 31 percent increase in Fire/EMS utilization per 1000 residents. This
growth has been in both EMS and fire/rescue calls for service. The following graphs depict the growth in call volume:
Qbhf!241!pg!276
Cottage Grove Public Safety Fire Department
Staffing Plan
Page 6
Total Fire Deparmtent Calls for Service, 2017-2022
5000
4518
4500
4000
4135
3221
3500
3326
3000
3442
3070
2500
2000
year 2017year 2018year 2019year 2020year 2021year 2022
Projected Fire/EMS Call Volume, 2023-2027
6500
6000
5618
5500
5933
5038
5000
5320
4500
4771
4518
4000
3500
3000
FY 2022FY 2023FY 2024FY 2025FY 2026FY 2027
Qbhf!242!pg!276
Cottage Grove Public Safety Fire Department
Staffing Plan
Page 7
Fire/EMS Calls per 1000 People
120
110
110
94
100
104
86
90
79
86
89
80
83
70
60
50
Year 2015Year 2016Year 2017Year 2018Year 2019Year 2020Year 2021Year 2022
The distribution of these calls across time of day is also relevant to the delivery of service. Approximately two thirds of
calls occur between 8:00 AM and 8:00 PM, with the remaining third occurring at night. Distribution by day of the week
is virtually even, with each day of the week accounting for between 13 and 15 percent of calls.
Call VolumeFactors
There are many factors that have led to increased calls for serviceover the last five years. Many of the below factors are
shared amongst Fire/EMS providers in the Twin Cities metro, State of Minnesota and the United States.
The leading factor for calls for service is rapid population growth in Cottage Grove. While population growth is the most
quantifiable factor, commercial and industrial growth in the city has been substantial and highlighted by major projects
such as the Renewal by Anderson addition and the NorthPoint Logistics Center. The City has witnessed a 12.3 percent
population growth (2020 U.S. Census) between 2010 to 2020 which is a phenomenal rate of growth and increases
demand for services. Furthermore, it is estimated the City of Cottage Grove has grown an additional 5.7 percent
between 2020 and 2022 (U.S. Census Bureau, 2022.)
The growth in the older adult population has been another significant drive for calls for service for the community. Older
adults typically have moremedial needs and require more frequent utilization of EMS services to transport them to
hospitals for emergency evaluation. The City has seen an explosive growth in the senior population since 2010. Cottage
Grove saw an increase in the older adult population from 8.3 percent of the population in 2010 to 11.8 percent of the
community in 2020. This was an increase of nearly 2000 older adults over ten years.
Aging homes and infrastructure areanother driver for increased calls for service. With the first large residential
developments in Cottage Grove now surpassing 60 years, aging homes and infrastructurepresent an increasedrisk of
fires, issues with features such as natural gas lines, mechanical or ventilation systems. Aging infrastructure also may lack
key fire protection design and features, such as sprinklers, due to being built before adoption of current fire, building
and residential code requirements.
The department has seen an increasing fire/ems utilization per 1000 people in the last five years. This has been a
national trend and is due to the same factors witnessed in the community such as growing population, aging population
and aging infrastructure.
Qbhf!243!pg!276
Cottage Grove Public Safety Fire Department
Staffing Plan
Page 8
Current Staffing Does Not Meet Demand for Service
Since approximately 2019, the CGFD has seen a degradation in its emergency response and its capacity to provide
community risk reduction services directly tied to staffing. The greatest impact on emergency response services canbe
seen in EMS, which of course constitutes the great majority of calls for service. When aCGFD crew is not available, we
rely on mutual aid from a neighboring agency. Most, often, that is the Woodbury Fire Department. Simply put, mutual
aid crews take far more time to reach a caller in Cottage Grove than CGFD crews do, when they are available:
Cottage Grove Response Times to Cottage Grove:
EMS incidents(2022, City of Cottage Grove Response)
th
90percentile: 9:33(i.e., 90% of calls arrive within seven minutes, thirty seconds)
Median: 6:29
Mean: 6:50
Fire/RescueIncidents(2022, City of Cottage Grove Response)
th
90percentile 13:07 (i.e., 90% of calls arrive within seven minutes, thirty seconds)
Median: 8:53
Mean: 9:43
Woodbury EMS Response Times to Cottage Grove:
th
90percentile: 16:00
Median: 11:28
Mean: 12:00
MHealth Fairview is a less-frequent mutual aid responder. Their response time is typically 15-20 minutes from various
locations in Dakota County.
Those differences represent a material degradation in quality of service and could easily influence patient outcomes.
Unfortunately, the need for mutual aid is increasing rapidly: CGFD has seen an increase of 245% in EMS mutual aid
between 2019 and 2021. This has been witnessed by other metrofire and EMS agencies with Washington County
agencies experiencing this as well. The concerning nature of this is with this continued mutual aid reliance on
neighboring agencies, there will be an eventual critical ceiling in which there may not be an agency within many miles to
respondthat would represent response times of thirty minutes or more. It is imperative the city has sufficient resources
to cover 99 percent of its calls for service. This is shown on the following graph:
EMS Mutual AidCalls Given Away, percent
5
4.3
4
Concern >3%
3
2.6
2
1.5
1
Goal <1%
0
201920202021
Qbhf!244!pg!276
Cottage Grove Public Safety Fire Department
Staffing Plan
Page 9
Today, approximately 5% of Cottage Grove EMS callers are served by mutual aid. Without additional staffing, we project
that number to be 8% in 2024 and 10% in 2025.
Use of EMS Mutual aid also has financial implications. In addition to relying on mutual aid, CG also serves as a mutual
aid partner on many calls each year. In general, the agency providing EMS transportation services receives revenue for
aid service delivery (the difference between the number of times CGFD provides mutual aid versus the number of times
it receives mutual aid) dropping from a net of 216 calls in 2019 to a net of 132 calls in 2021.
Out of Service Times Also Reveal the Magnitude of the Issue
predictable outcome of increased call volume and static staffing levels, exacerbated by unfilled slots on shift. With
increasing call volume and no changes to staffing, it is expected to see OOS times to continue to increase. It is expected
to see OOS times reach ten percent or higher by 2024. The goal for OOS is less than one percent and a critical number is
over three percent. OOS times are measured in total hours EMS and fire units are not available.
Percent of
Percent time total
Years OOS change hours
<1%
2019 72
1.4%
2020 120 67%
3.7%
2021 320 63%
4.4%
2022 382 19%
5.2%
2023* 458 20%
6.3%
2024* 550 20%
7.5%
2025* 660 20%
*Projected utilizing 2022 percentage change
During OOS times, EMS calls are referred to mutual aid; the implications of that are described above. Fire calls result in
callbacks (i.e., radio paging) of part-time and off-duty full-time personnel -
support critical needs for the city. Call-backs are necessary when there is a significant incident such as a house fire (on-
shift staffing does not support full fire ground operations), major accident or rescue incident. In both instances, response
times increase markedly. Increased call-backs, while necessary to provide critical staffing needs, require staff to
interrupt their off-duty time. These are especially burdensome for part-time people and is a frequent driver for turn-
over.
Call-back Personnel Responding
Year Average Call-
back response
2017 6.8
2018 6.0
2019 4.9
2020 4.6
2021 5.2
2022 4.8
Increasing OOS time represents a significant, measurable risk to the community.
Qbhf!245!pg!276
Cottage Grove Public Safety Fire Department
Staffing Plan
Page 10
Staffing Further Impacts Strategic Efforts to Prevent Emergencies and Customer Service Levels
Finally, the demand for emergency response ha
risk reduction services (inspections, investigations, and public education efforts). There are many examples in which
firefighters started an inspection and would have to leave to attend to calls since there was no one else available to
answer the call, and some examples where inspectors missed scheduled inspections without notice while responding to
emergencies due to understaffing. The department has been unable to expand the life safety inspection program that
has the potential to save lives. While the Fire Department offers great customer service and most business occupants
are understanding, this is obviously not the type of service the department aims to provide and does not meet customer
expectations.
Part-Time Staffing is Increasingly Difficult Due to Recruitment and Retention Challenges
While Cottage Grove remains committed to recruiting and retaining part-time firefighters and to maintaining a true
combination department, the City is not immune from national and local trends toward fewer qualified candidates and
more turnover of current part-time employees. Many local communities have markedly reduced or eliminated their
part-time firefighter programs over the past 10 years, including Brooklyn Park, Eagan, Edina, Maplewood, Oakdale,
Plymouth, Prior Lake, Roseville, White Bear Lake, and Woodbury.
The below timeline demonstrates the many departments in the Twin Cities metro that have had to make significant
changes in their staffing model. In 2014, the University of Minnesota in partnership with the Minnesota State Fire Chief
of Non-
which forecasted many of the same problems witnessed by the CGFD and despite addressing many of the issues
identified as drivers in the report, departments have not been able to achieve recruitment and retention goals. The
CGFD is not alone in this problem.
Qbhf!246!pg!276
Cottage Grove Public Safety Fire Department
Staffing Plan
Page 11
Washington County is an epicenter of this continued issue of part-time recruitment and retention. Along with difficulty
in recruiting and retaining part-time firefighters, many departments are now faced with adding or increasing the number
of full-time firefighters. Lake Elmo, Mahtomedi, Oakdale and Woodbury have all added or increased full-time staff and
most, if not all, of the fire departments in Washington County have failed in recruiting and or retaining part-time
firefighters to their authorized strengths.
With the full support of the City, the CGFD has taken many steps to stimulate recruiting and retention of part-time
firefighters, including:
!Wage increases of over 20% over three years, and inclusion of part-
adjustments (COLA).
th
!Focus on remaining competitive with other departments and remain in upper 50 percentile for wages and
retirement benefits compared to other metro area combination departments.
!-time firefighters to choose their schedule to work
their required hours.
!Reduced off-shift training requirements
o!Reduced combined on-shift and off-shift training requirements to absolute minimum required for
fire/EMS certifications.
!Eliminated required city event engagement requirements to reduce burden of off shift time.
!Significant increase in yearly retirement benefit which now surpasses $9,000 per year of service.
!Parallel increases in retirement benefits for part-time firefighters, current and planned.
!Reduction in the required monthly shift hours to 36 hours (3 shifts) per month.
!Aggressive recruitment of high school students in EMT programs by hosting over a dozen of students and
-
!Aggressive recruitment in local EMT and Paramedic programs at local colleges
!Reduction in the requirement for off-shift training to a minimum of four training sessions per year.
!-requirements*
o!Eliminate call-back requirements for part-time staff.
o!Please note, this elimination of call-back requirements did not improve recruitment or retention and led
to detrimental effects on call-back response.
o!Gave part-time staff option to work more monthly hours in lieu of call-back requirement.
! to open pool of candidates
!Allow interested citizens with no training to be trained in fire and EMS to meet minimum requirements for part-
time firefighter/EMT.
o!It costs an average of $4,000 per firefighter to train in basic requirements of fire and EMS
(approximately 16 college credits)
o!Field Training for new firefighter/EMTs is 18-24 months (initial training plus on-shift training
!Rapid on-boarding of those with required certifications
!Revised Field Training Program (FTO) to improve on-boarding and assimilation into the organization.
!Extensive training opportunities for part-time firefighters interested in seeking more training include fire officer
training, fire apparatus driver/operator, live fire instructor, fire investigation training, rescue training, hazardous
materials training and many more opportunities.
The recruitment and retention efforts require a delicate balance between hiring capable firefighters to provide quality
services to the community while creating requirements that are manageable for most part-time staff. As demonstrated
above, the department has sacrificed many requirements that may improve quality of response (e.g. training
Qbhf!247!pg!276
Cottage Grove Public Safety Fire Department
Staffing Plan
Page 12
requirements, call-back requirements) to improve recruitment and retention. Despite these adjustments that may
sacrifice quality of response, the department has witnessed continued difficulty in recruitment and retention. This is
metro, state and national problem that continues to plague the fire service
Despite these efforts, CGFD has been unable to maintain anything approaching the authorized staffing level of 50 part-
time firefighters that correlates to filling the part-time slots on shift at the current staffing levels. The following recent
historical data illustrates the challenge:
Part-
Year Started End Turnover percentage Resigned/term Added End of year
Year Year roster
2017 50 40 20% 11 10 49
2018 49 39 20.4% 10 7 46
2019 46 35 23.9% 11 8 43
2020 43 39 9.3% 4 7 46
2021 46 31 32.6% 15 0 31
2022 31 23 25.8% 8 6 28*
Average 21.2%
*One of the added firefighters in 2022 resigned within three months of start
2-Year and 5-Year Retention of Part-Time Firefighters since 2017
Started Completed 2 or 5 Percent retained
year
2-year retention 31 14 45%
5-year retention 10 2 20%
One of the greatest impacts to service delivery is the continued reliance on part-time staffing amongst the reality of
shrinking part-time workforce is the inability to fill shifts to provide basic coverage for the community.
This has led to a reduction in capacity to fill needed part-time shift slots. In 2022, there were 5829 part-time hours left
uncovered due to decreased number of part-time firefighters. This equates to almost 16 hours per day of uncovered
part-time shifts (2.0 FTE). It has also led to a reduction in the number of firefighters responding to call-backs to staff
larger emergencies. Traditionally, a large part-for an emergency
response force to be available in-case of a house fire or significant emergency. With reducing part-time staff and
elimination of call-back requirements, this is no longer true. Historical call-back response data is as follows:
Year Average Call-Part-time Total Part-
back response response Time Staff*
2017 6.8 4.8 49
2018 6.0 4 46
2019 4.9 2.9 43
2020 4.6 2.6 46
2021 5.2 3.2 31
2022 4.8 2.8 28
*End of year roster
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Cottage Grove Public Safety Fire Department
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Finally, this level of part-time turnover is very costly for the City. These open shifts lead to significant reliance on full-
time firefighter overtime cost to maintain minimal coverage requirements.
Year Fire Actual Ambulance Actual Total Actual
2011 1,456.00 339.68
1,795.68
2012 7,886.00 1,489.30
9,375.30
2013 3,403.00 104,782.34
108,185.34
2014 7,156.00 69,533.13
76,689.13
2015 6,313.00 73,562.28
79,875.28
2016 33,407.00 27,056.81
60,463.81
2017 28,468.00 36,438.69
64,906.69
2018 27,950.00 67,331.78
95,281.78
2019 23,006.00 59,216.51
82,222.51
2020 24,383.00 48,530.93
72,913.93
2021 59,141.00 166,211.29
225,352.29
2022 63,823.00 184,424.58
248,247.58
2023 YTD* 17,153.00 47,781.00
64,934.00
2023 YTD is
through June
Among fire-based EMS agencies in the Twin Cities metro, their tends to be a population trigger where call demands
outpace the ability to meet the needs of the community with a large part-time workforce requiring a transition to a
more or complete full-time staffing model. Other larger Twin Cities fire departments that do not provide EMS
ambulance service have also been required to transition to more or completely full-time department. For fire-based
ambulance fire departments, this population trigger is around 36,100 people.
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Major changes in Twin Cities Metro Fire Department Staffing
2016-2024
Population Level at Change
*Fire-based EMS ambulance
#includes service area population
Part-time Staffing is not unique to the fire department within the City
The part-time staffing difficulty is not unique to the fire service and is seen in many industries. The part-time staffing
challenges are not unique to the fire department in the City of Cottage Grove either. River Oaks Golf and Event Center
has highlighted the same difficulties in utilizing part-time staff to meet service growth demands. In their 2021-2025
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Cottage Grove Public Safety Fire Department
Staffing Plan
Page 15
st
Business Plan (presented to City Council on March 1, 2023), River Oaks Leadership presented the following in regards to
their staffing challenges:
.ĻĭğǒƭĻ ǞĻ ğƩĻ ğ ƭĻƩǝźĭĻ źƓķǒƭƷƩǤͲ ƩĻǝĻƓǒĻ ŭƩƚǞƷŷ ƓĻĻķƭ ƷŷĻ ƭǒƦƦƚƩƷ ƚŅ ğķķźƷźƚƓğƌ ƦĻƩƭƚƓƓĻƌ ƭĻƩǝźĭĻƭ͵
IźƭƷƚƩźĭğƌƌǤͲ ǞĻ ŷğǝĻ ƒĻƷ ƭĻƩǝźĭĻ ŭƩƚǞƷŷ ƓĻĻķƭ ĬǤ ǒƷźƌźǩźƓŭ ƭĻğƭƚƓğƌ ğƓķ ƦğƩƷΏƷźƒĻ ƭƷğŅŅ͵ IƚǞĻǝĻƩͲ ğƭ ǞğŭĻƭ ŅƚƩ
ƷŷĻƭĻ ƦƚƭźƷźƚƓƭ ĻƭĭğƌğƷĻ ƩğƦźķƌǤͲ źƷ źƭ ĬĻĭƚƒźƓŭ ğƦƦğƩĻƓƷ ƷŷğƷ źƓǝĻƭƷźƓŭ źƓƷƚ ŅǒƌƌΏƷźƒĻ ĻƒƦƌƚǤĻĻƭ Ǟźƌƌ ğĭŷźĻǝĻ ğ
ƒƚƩĻ ƭƷğĬƌĻ ƚƦĻƩğƷźƚƓ ğƓķ źƓĭƩĻğƭĻ ƚǒƩ ƭĻƩǝźĭĻ ƌĻǝĻƌƭ ǞźƷŷ ƓƚƒźƓğƌ źƒƦğĭƷ Ʒƚ ƚǒƩ ĻǣƦĻƓƭĻƭ͵
It is critical to highlight the fire department does not recommend eliminating part-time staff. However, the fire
department is recommending --2025 Business Plan highlights the
benefitl-which the fire department would also benefit from including:
!ƩĻĭƩǒźƷ ğƓķ ƩĻƷğźƓ ƭǒƦĻƩźƚƩ ƷğƌĻƓƷ
!ΏƷƩğźƓźƓŭ ğĭƩƚƭƭ ƭƉźƌƌĻķ ƦƚƭźƷźƚƓƭ͵
!
!
!
The River Oaks Business plan highlights the similar challenges the fire department has with the significant dependence
on a large part-time workforce. River Oaks also highlights the benefits of a conversion to a more full-time workforce in
which the fire department would witness as well with this conversion.
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Recommendation Overview
Our recommendations reflect a three-phased approach, with options at Phases II and III. We recommend adding full-
time staff immediately to stabilize the situation, while continuing to recruit and retain part-time staff to fill slots on shift
and to staff larger incidents through call-backs (Phase I). Following an immediate period of stabilization, the City will
need to continue to add resources to the department (Phase II) but may do so in ways that prioritize the capacity for
service delivery, or that prioritizes cost containment. Optional scenarios are presented below. Because of the pressing
need for both community risk reduction and emergency response services, we recommend the more robust option for
Phase II. The robust option assumes full implementation of a holistic community risk reduction program that includes
proactive fire prevention education, code enforcement, community engagement, health promotion (ex. Heart Safe City)
and business engagement. Finally, the situation must be monitored, and needs addressed over time (Phase III). Each is
described below.
Phase I - Stabilization
Timeline: Years 0-2
Phase 1 will be a stabilization phase. The department is already in critical staffing need due to increasing call volumes
and by many gaps in the schedule due to a large lack of part-time firefighters. As with departments throughout the
metro and the nation, it is expected to see the continued lack of part-time firefighters. The greatest impact for this
phase is to stabilize the part-time system by converting part-time FTE to full-time FTE. This is not adding FTEs but
transferring FTE which will provide better coverage. The goal is to establish a core group of part-time staff in which more
resources can be dedicated to equipment, training, and time. The goal part-time number will be 23 part-time
firefighters. It is recommended to allow for 20-25 part-time firefighters to allow for flexibility for anticipated and on-
going turnover.
Outcomes
1.!Improved and much more reliable shift coverage
2.!20-25 part-time firefighters is more sustainable in near term (1-5 years)
3.!Contain costs with stabilization phase I plan
Action Steps
1.!Add three full-time Firefighters to cover current part-time shortage of 25 firefighters
a.!Add three full-time firefighters while maintaining current number of part-time firefighters.
2.!Maintain a sustainable part-time staffing of 20-25 engaged and dedication part-time firefighters
a.!Aggressive investment in dedicated corps of 20-25 part-time firefighters.
3.!Cost containment with part-time relief dissolution.
Financial Implication
1.!To implement this plan (FT and PT staffing) on 4/1/2024 will require approximately $234,000 (General Fund) in
additional funds. In 2023, the City will receive $266,000 in Fire Relief Aid. If these Fire Relief Aid funds are
available to the City at a future time, this could be used to fund these personnel costs. 2025 will require an
additional $115,500 in funding ($86,600 General Fund and $28,900 EMS Fund).
2.!The Financial Management Plan included adding one Firefighter/Paramedic each year from 2024 through 2026.
The one-time Public Safety Aid will allow the City to add all three Firefighter/Paramedics in 2024.
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Current State vs. Phase 1 Plan
Current State
2 ALS ambulances and no dedicated fire engine = 73 percent of all hours
rd
2 ALS ambulances and dedicated fire engine (cross staffs 3 ambulance) = 27 percent of all hours
Current trajectory is 80 percent of all hours with no dedicated fire engine by end of 2023 to mid-2024
Proposed Phase 1 Plan
2 ALS ambulances and non-dedicated fire engine = 60 percent of all hours
rd
2 ALS ambulances and dedicated fire engine (cross staffs 3 ambulance) = 40 percent of all hours
Improve the amount of time dedicated fire engine is staffed while significantly stalling further decline in hours with
uncovered fire response.
Population Total Full-time Firefighters Part-time Firefighters Total Per shift
42000 15 21 6
*Part-time firefighter work 36 hours per month
Phase II, Option 1 Service Excellence (Most Costly)
Phase II- Staffing to meet community needs
Timeline: 2 to 5 years post stabilization plan (phase 1) implementation
Phase 2 is in which the Fire Department offers two scenarios to be selected by City Elected Officials and Leadership.
Scenario 1 is what the Fire Department has concluded delivers services consistent with the brand and image of the City
of Cottage Grove. S
assumptions that a healthy workplace is a necessity for fire and emergency services along with being a workplace of
choice. Scenario 1 allows the department to institute healthy workplace initiatives for its team members.
Please note, each scenario includes proposed staffing increases in the future based on community growth to keep pace
with the needs of a growing community.
Scenario I Outcomes
1.!Fire Department operations deliver services consistent with the brand and image of Cottage Grove.
2.!Maximize fire department contribution to the strategic goals of the city.
3.!Improve quality of fire response.
4.!Ability to perform and enhance community risk reduction and community engagement such as fire inspections,
school visits, community fire prevention, group visits.
5.!Add shift-based potential revenue generating position (Fire Inspector and/or Community Paramedic).
6.!Less reliance on overtime to cover leave of absence and annual leave
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7.Maintain response times to emergencies to meet community expectations and represent service excellence.
8.Minimize EMS mutual aid given away and maximize ability to take mutual aid for other communities to
maximize EMS revenue.
9.Ability to explore and provide specialized services such as specialized rescue, interfacility transfer, wildland fire
deployments which are potential revenue opportunities.
10.Greatly improve fire response to allow for dedicated fire coverage to maintain essential fire response time.
11.Explore and implement a holistic health and safety initiative for team members
12.Transform the fire department into an employer of choice.
Actions
1.Add staff over period of 2-5yearspost stabilization plan implementationbased on community population and
growth
Population-based Firefighter Staffing
Serivce Excellence
36
33
30
30
27
27
24
24
21
21
18
15
12
420004600050000
Full-timePart-time
Service Excellence
PopulationTotal Full-time FirefightersPart-time Firefighters*Total Per shift
4200024219
46000272110
50000302111
*Part-time firefighter work 36 hours per month
Proposed Phase 2, Service ExcellencePlan
2 ALS ambulances and 1 dedicated ALS Fire Engine = 60 percent of all hours
2 ALS ambulances, 1 cross staffed ladder/ambulance and 1 dedicated ALS Fire Engine = 40percent of all hours
Improve amount of time dedicated fire engine is staffed while significantly stalling further decline in hours with
uncovered fire response.
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Phase II, Option 2Cost Containment Emphasis
There are many competing needs from the community and other city departments. The Fire Department offers a second
scenario which is required to meet a very minimum ability to respond to emergency calls for service.This scenario is
While the focus on Option 1 was service excellence, the focuson Option 2 is on cost containment. The CGFD would
continue to function butwould not be able to fully realize the potential of community risk reduction efforts to promote
safety, reduce harm, and increase quality of life for residents.
Outcomes
1.Maintain minimal ability to response to emergency calls for service.
2.Minimal ability to maintain current community risk reduction and community engagement activities. Unable to
expand beyond current community-based activities.
3.High reliance on overtime to perform additional community-based activities.
4.Poor quality of fire response and inconsistent fire coverage.
5.Increasing reliance on mutual aid for EMS and fire response leading to increased response time for the
community.
6.Significant loss of EMS revenue due to mutual aid loss.
7.High reliance on overtime to cover leave of absence and annual leave.
8.Unable to establish a holistic health and safety program for team members.
Actions
1.Add staff over a period of 1-5 years based on community population andgrowth. Each additional
Firefighter/Paramedic will cost $135,000 in 2024 dollars.
Population-based Firefighter Staffing
Cost Containment
36
33
30
27
27
24
21
24
21
21
18
15
12
420004600050000
Full-timePart-time
Emergency Response Cost Containment Option
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Population Total Full-time Firefighters Part-time Firefighters Total Per shift
42000 21 21 8
46000 24 21 9
50000 27 21 10
*Part-time firefighter work 36 hours per month
Proposed Phase 2, Cost Containment
2 ALS ambulances and 1 dedicated ALS Fire Engine = 80 percent of all hours
2 ALS ambulances, 1 cross staffed ladder/ambulance and 1 ALS Fire Engine = 20 percent of all hours
Phase III Ongoing Management
Timeline- Post Phase II implementation Sustainment
Outcomes
1.!Continue FTE increases to match community growth to maintain level of service identified in phase 2
2.!Continue evaluation of services and staffing based on statistical analysis, community input and conforming to
best practice, industry standards and well-established research.
3.!Continue to evaluate community needs and adjust fire department priorities, service, and staffing
4.!Evaluate generating revenue opportunities and ability
5.!Evaluate effectiveness of part-time firefighter recruitment and retention
Conclusion/Next Steps
By implementing the Stabilization Plan in 2024, immediate benefits will be realized in the department. A more reliable
and predictable staffing plan will be achieved. In addition, there will be reduced overtime costs in the department.
Coverage minimums will be able to be increased to allow two front line staff to use their earned annual leave or
professional training while still maintaining coverage.
ELA Message
While ELA stands behind the analysis and recommendations, we cannot take credit for the hard work that went into this
report by the CGFD team. Rather, our role on the team was to guide and facilitate discussions and to incrementally
improve the document intended to guide Council decision-making. We hope that we have served as valuable partners
to the CGFD and to the City as you work to continue a legacy of excellent service, sound stewardship of public resources,
and fairness to all stakeholders.
On behalf of Ethical Leaders in Action, facilitators Martin Scheerer and Chad Weinstein wish to express gratitude to the
City of Cottage Grove and the Cottage Grove Fire Department for the opportunity to again be of service to your
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Cottage Grove Public Safety Fire Department
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Page 21
Appendix: Additional Supporting Data
The CGFD Team compiled a great deal of data to support our assertions and recommendations. While including all of
this information in the body of the report led to a less user-friendly document, that data may be helpful to guide some
decision-makers. For that reason, it is included below.
More About Fire Response Quality
Fire Department Fire Response Quality
The Cottage Grove Fire Department provides quality EMS services which is represented by higher that average cardiac
arrest survival rates, receiving a Silver Award from the American Heart Association for cardiac care and meeting or
delivers quality EMS care, when it can respond and is available to respond. The current staffing crisis effects the ability
to respond yet when a fire department can respond to an EMS call, it delivers a high quality of services. For fire
response, the current staffing situation directly effects the ability to respond to fire calls and the quality of fire response.
Fire response and the ability to effectively save trapped occupants, provide effective fire suppression (firefighting) and
protect property is directly related to the number of firefighters arriving on-scene and within a target time response.
The National Fire Protection Association (NFPA) in their NFPA 1710, Standards for the Organization and Deployment of
Fire Suppression Operations, Emergency Medical Operations, and Special Operations to the Public by Career Fire
Departments, standard explicitly outlines the standard of 15 firefighter to arrive on-scene within 8 minutes for single-
family homes to best provide rescue, firefighting, and property protection. The National Institute of Technology (NIST),
through rigorous research design, demonstrates the need for firefighter crews of at least four to respond in the initial
1
minutes to complete critical fire ground tasks effectively, efficiently and in timely manner. This study further provided
evidence for the recommendations in NFPA 1710. In follow-up peer-reviewed research published in 2021, crew size was
2
evaluated and demonstrated to have a direct effect on firefighter health and safety. The research found that NFPA 1710
should be viewed as a ƒźƓźƒǒƒ to support positive outcomes for firefighter health and safety. A safe and effective
e of
Technology (NIST) has been conducted on fireground operations and nature of fires that occur in modern households.
What has been demonstrated is that fire dynamics have significantly changed due to changes in household construction
and the composition of household goods. These changes have led to fires that burn faster and have a much higher
intensity both of which puts the residents and businesses of our community in greater danger when there is a fire. The
response now required to respond must be quick and an effective response force is needed more than ever. As
displayed in the below image, the time to conditions that become non-survivable to residents in the fire room/area and
greatly threaten others present in the building (referenced as flashover in the image) to residents occurring much more
1
Averill, et. al. (2010). Report on Residential Fire Ground Field Experiments. National Institute of Standards and Technology
th
Technical Note 1661. Retrieved July 6, 2022, from https://www.nist.gov/system/files/documents/el/fire_research/Report-on-
Residential-Fireground-Field-Experiments.pdf.
2
Moore-Merrell, et. al. (2021). Effects of Crew Size on Firefighter Health and Safety. LƓƷĻƩƓğƷźƚƓğƌ CźƩĻ {ĻƩǝźĭĻ WƚǒƩƓğƌ ƚŅ \[ĻğķĻƩƭŷźƦ
ğƓķ ağƓğŭĻƒĻƓƷͲ 15, 7-25.
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Source: Kerber, 2012
The Cottage Grove Fire Department, based on its legacy as a paid-on-call fire department, is staffed for fire suppressed
paid on-call firefighter model. While on-shift staffing has improved this, the demand for EMS calls along with bordering
two paid on-call fire departments and the distance from staffed fire departments still reckons back to the acceptance
this level and speed of response is appropriate. Now, more than ever, an effective response force must be assembled
and on-scene at or around the eight-minute mark to have an adequate impact on fires that occur in the community.
Measuring the quality of a fire response has been difficult and has largely relied on response times which is important,
but it rarely represents the outcome of the response and whether that was a quality response. An impactful metric that
This
measure is incredibly valuable as when fires are confined to the room of origin, it has a significant impact on preventing
injuries, deaths, and fire losses. It shows the quality and excellence of response as our mission is to prevent injuries,
3
deaths, and loss from the ravages of fire. According to data from NFPA 1710, when fires spread beyond the room of
origin, injuries increase nine-fold, deaths increase three-fold and fire loss damage increases almost nice-fold. When we
can confine fires to the room of origin, we provide a quality fire response. It is also a helpful measure for quantifying
sprinklers and other fire prevention measures as the fire may not have been prevented, but it helps measure on how
well mitigation efforts performed. To measure overall quality of fire response, the Fire Department evaluates its overall
fire response performance with the percentage of fires contained to the room of origin over a period. In many
circumstances, the ability to confine a fire to a room origin represents the ability for the fire department to prevent the
fire from reaching flashover which is a critical transition for a fire and leads to great danger to occupants and property
loss.
The Cottage Grove Fire Department from 2019-2021 confined 58 percent of fires to the room of origin. The national
4
average is 75 percent and high-performing departments have percentages of fire contained to the room of origin of
property loss. The quality of fire response is in need of improvement.
3
NFPA 1710 reference
4
NFPA reference for fire to room of origin
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Cottage Grove Public Safety Fire Department
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The ability to provide quality fire response is directly related to the ability to respond with an effective response force.
An effective response force is desired on all fires and the national consensus benchmark is 90 percent of all response
should have an effective response force. For a single-family home, this is 15 firefighters on-scene within 8 minutes which
includes the first-arriving unit to have four firefighters. The effective response force can include mutual aid units for
neighboring departments. Due to extended response times form mutual aid fire departments and low staffing on-shift
along with a high percentage of out of service time, the Fire Department has not had an effective response force on any
structure fire since 2017. Effective response force is a critical measurement to appropriate predict the level of
firefighting quality. The quality metric of fire contained to the room of origin for the Fire Department is well explained
with the failure to have an effective response force on fire since 2017.
and will always be needed on structure fires and large incidents, the fire department is dependent on mutual aid for
more than 60 percent of its effective respond force on every fire; this 60 percent assumes the shift is fully staffed and all
units are available to respond which is very rare. In a scenario with no financial limitations, this reliance on mutual aid to
meet an effective response force should zero percent, yet realistically it should be 25-40 precent in very resource limited
communities such as Cottage Grove.
The other significant issue is the closet mutual aid fire departments are both paid on-call departments which greatly
increases response time. Newport and St. Paul Park Fire Departments are great partners, and the department is
incredibly thankful for their mutual aid, the departments have longer response times to Cottage Grove due to distance
and the type of staffing their fire departments employ. Since paid on-call firefighters respond from home to the fire
station, it adds time to the overall response especially when coming to Cottage Grove when a longer drive time is
-
like Cottage Grove, this should be 80 seconds or less. Turn--
response time.
For our two closest fire mutual aid fire departments, their turn-out time is below:
Newport Fire
th
90 percentile: 6:25 minutes (386 seconds)
Median: 3:40 minutes (220 seconds)
Saint Paul Park
th
90 percentile: 5:45 seconds (345 seconds)
Median: 4:36 minutes (276 seconds.)
On top of the turn-out time, drive time to the incident would then be added. Realistically, the response time to many
areas in Cottage Grove is likely 12-15 minutes or more.
Woodbury Fire also provides mutual aid and their EMS median time is 12 minutes. They are staffed 24 hours per day, so
their turn-out time is likely less than a paid on-call department. Woodbury Fire realistically could make northern parts of
Cottage Grove within eight minutes yet for the majority of Cottage Grove, their response time would far exceed 10-12
minutes.
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The greater limitation exists in our mutual aid paid on-call departments due to the same issues we face with part-time
staff. Like Cottage Grove, St. Paul Park and Newport has very limited daytime response staff. It is common for them to
one have 1 or 2 firefighters available during the day.
The fire department currently has a median fire response of 6:48. This is much better than mutual aid response to the
city,yet the median response time is greatly effect effected by out of service time. We had several instances in which we
needed to wait for call-back personnel to put a truck in service to respond.
To demonstrate these extended response times to fires in the community, the below maps display mutual aid response
to the City of Cottage Grove and what coverage mutual aid provides for the city when no Cottage Grove crews are
staffed and/or available.
St. Paul Park Fire Department
The areas highlighted in the map below is the area in which St. Paul Park Fire Department, based on a turn-out time
average, could be responded to within 8 minutes.
Colors represent total response time (turn-out time +drive time) for eight minutes or less
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Newport Fire Department
Colors represent total response time (turn-out time +drive time) for eight minutes of less
Woodbury Fire Department
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The areas highlighted in the map below is the area in which the Woodbury Fire Department, based on a turn-out
assumption of 1:20 minute (based on it being staffed 24/), could be responded to within 8 minutes. The Woodbury Fire
Department provides mutual aid fire engine coverage from their Fire Station 3 at 6975 Thames Road.
Colors represent total response time (turn-out time +drive time) for eight minutes of less
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Cottage Grove Call-back
The areas highlighted in the map below is the area in which the Woodbury Fire Department, based on a turn-out
assumption of 4 minutes, could be responded to within 8 minutes. The Cottage Grove Fire Department call-back
requires individuals to respond from home to the fire station to staff a fire apparatus to respond to the fire.
Cottage Grove Fire Department- Staffed response
The areas highlighted in the below map is the area in which the Cottage Grove Fire Department can respond within 8
minutes if the central fire department has staff available. A staffed department provides good coverage of the city,
especially in the higher population and commercial density areas in the community.
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When there is no staff at the fire station to respond to fires, there a significant increase in response time and even with
immediate mutual aid requests, the nature of neighboring departments and distance create significant delays in
response. These significant delays lead to a major risk in protecting the community from the risk of fire. Furthermore,
these maps do not detail the number of staff needed to appropriately staff a first responding fire crew (which should be
at least 4) and the further needs to appropriate staff the incident (which is over 15 for a regular single-family home).
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More About EMS Mutual Aid
Unfortunately, the need to rely on mutual aid is increasing exponentially. The Fire Department has seen a 245 percent
increase in need for mutual aid EMS since 2019. In 2021 alone, the community experienced 107 incidents in Cottage
Grove that had to experience two to three times longer response times due to the need for mutual aid EMS. In fire/EMS,
the Fire Department should have a mutual aid need of less than one percent of calls, and three percent is considered a
critical level. In 2021, the Fire Department crossed this red line and went significantly above it. The true nature of this is
that 1 in 25 calls for service in our community will experience significant increase response times to an emergency.
EMS Mutual AidCalls Given Away, percent
5
4.3
4
Concern >3%
3
2.6
2
1.5
1
Goal <1%
0
201920202021
If this trajectory continues without changes in staffing, the Fire Department anticipates a mutual aid call percentage of
over eight percent by 2024 and ten by 2025. In 2025 without staffing improvements, one in ten calls for service will have
EMS Mutual Aid Given Away, percent
11
10
10
9
8
8
7
6
6
5
5
4.3
4
3
2.6
2
1.5
1
0
2019202020212022202320242025
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EMS Calls Lost
500
450
448
400
350
335
300
250
235
200
183
150
150
100
71
50
47
0
2019202020212022202320242025
The biggest concern is the double to triple response times that do not represent service excellences, yet it must also be
noted the major impact losing EMS calls to mutual aid has on revenues. For those EMS calls the Fire Department lost in
its EMS service area which includes Grey Cloud Island Township, Newport and St. Paul Park, there was a loss of over
$135,000in netrevenue in 2021 and this will triple by 2025 on the current trajectory without staffing improvements.
Lost EMS Net Revenue
Service Area Calls
$450,000
$403,200
$400,000
$350,000
$300,000$301,500
$250,000
$211,500
$200,000
$164,700
$150,000
$135,000
$100,000
$63,900
$50,000
$42,300
$0
2019202020212022202320242025
One major point of pride for the Fire Department is providing exceptional care to those in Cottage Grove and being
available for mutual aid to surrounding community. This has allowed the Fire Department to showcase the great EMS
care it provides to other communities,and it has been a great revenue source for the department. the Fire Department
has provided much mutual aid to Woodbury, and this has led to theFire Department taking approximately 282 EMS calls
in Woodbury and communities in Dakota County in 2021. For 2021, this led to an additional $120,000in revenue. While
Qbhf!266!pg!276
Cottage Grove Public Safety Fire Department
Staffing Plan
Page 31
evenue. the Fire Department has
-minus
cover mutual aid calls stay flat, the department have seen a great decrease in the plus minus in both of total mutual aid
calls and revenue.
Calls Taken vs. Given Away (+/-)
250
216
200
146
150
100
132
50
0
201920202021
With the current staffing level, the Fire Department is looking at the possibility that it will be giving away more calls than
provide high quality service to the community, it also will lead to significant decreases in revenue. In the below chart, it
demonstrates the current trend towards losing more calls to mutual aid than what is taken. This estimation assumes the
department will continue to take a similar amount of mutual aid calls as it did in 2021.
Mutual Aid Plus/Minus
Calls Lost vs. Taken
250
216
200
150
146
132
100
71
50
-19
0
2019202020212022202320242025
-50
-81
-100
-150
-194
-200
-250
Below, the revenue implications are forecasted. As soon as 2023, the Fire Department will give away more mutual aid
than it takes which will lead to a net negative revenue for mutual aid calls which will have large budgetary impacts.
Qbhf!267!pg!276
Cottage Grove Public Safety Fire Department
Staffing Plan
Page 32
How do we compare?
It is helpful to determine staffing levels compared to local departmentsin the metro area. Although each community is
unique in its needs, there is common needs within in the region. In terms of comparison cities in the Metro, the fire
department evaluated itself against communities of 25000-50000 and where the fire department provided Advanced
Life Support ambulance. This offers comparison to the cities of Burnsville, Edina, Maplewood, Oakdale and White Bear
Lake. Please note Cottage Grove and White Bear Lake are the two departments that continue to use part-time and full-
Minnesota has traditionally had dismal fire service spending per capita which ranks
Minnesota in the bottom five in fire service spending compared to all 50 states. This background is important to
appreciate as even the most well-
national average of firefighters per capita and Midwest comparable cities. The comparison is for shift-based staffing and
does not include administrative (chief) staffing. The below graph demonstrates how the Cottage Grove Fire Department
compares to metro area comparable departmentsalong with national and regional comparable:
2023 Staffing Comparison-FTE/1000 people
2
1.8
1.6
1.2
1
0.66
0.8
0.49
0.4
0
National AverageMidwest comparableTwin Cities MetroCottage Grove
More about the Cost of Part-Time Firefighter Turnover
Although the data indicates a roster of over 40 part-time firefighters for several years, many of these firefighters never
5
completed field training process (FTO--year
and 5-year retention. Part-time firefighters available to work on-shift (this requires completion of FTO) was in the 30s
range for the last 5 years.
This lack of part-time firefighters has led to significant decreases in ability to staff shifts, even to minimal levels. When
part-time shifts are not covered to meet minimal staffing needs, the burden of this staffing falls to full-time staff and
many times this must be covered with full-time overtime shifts. This problem has come so exacerbated, the fire
department is averaging 15 hours per day of uncovered part-time shift coverage in 2022 over the first six months of the
year.
High turn-over destroys organizational culture and has a major factor on delivering consistent high-quality services. In
addition, it has a significant financial cost in terms of training, FTO, equipment and so forth. For example, the 20
firefighters that did not make it to 5-years would have cost $60,000 in gear and equipment. The likely cost to equip, train
5
-the-job training and orientation that occurs for all firefighters and is
overseen by a Field Training Officer. Firefighters must successfully complete FTO to work independently as a Firefighter
Qbhf!268!pg!276
Cottage Grove Public Safety Fire Department
Staffing Plan
Page 33
and support a part-time firefighter is likely over $10,000 per firefighter over the first five years. While the cultural and
quality pieces of high part-time turnover is difficult to quantify, the fiscal costs are staggering and concerning when
compounded throughout the years of high turnover.
Qbhf!269!pg!276
City Council Action Request
3.C.
Meeting Date 7/12/2023
Department Public Safety
Agenda Category Action Item
Title
Dissolution of Fire Relief Association
Staff Recommendation
Budget Implication
Attachments
1. Dissolution of Fire Relief Association Council Memo 07.06.23
2. PT Firefighter Survey Results
1
Qbhf!26:!pg!276
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!
!
!
To:!Ipopsbcmf!Nbzps!boe!Djuz!Dpvodjm!
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From:!Sjdibse!Sfefojvt-!Efqvuz!Ejsfdups!pg!Qvcmjd!Tbgfuz!
Qfufs!K!Lpfsofs-!Ejsfdups!pg!Qvcmjd!Tbgfuz!
Date:!Kvmz!6-!3134!
!
Subject:!DISSOLUTION OF FIRE RELIEF ASSOCIATION !
!
!
Introduction
Jo!3131-!uif!Njooftpub!mfhjtmbuvsf!bepqufe!Njooftpub!Tubuvuft-!Tfdujpo!535C/33!up!qspwjef!uif!
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!
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!
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Qbhf!271!pg!276
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svo!qfotjpo!gvoe!up!uif!Njooftpub!Tubufxjef!Wpmvouffs!Gjsfgjhiufs!)TWG*!Qmbo!benjojtufsfe!cz!
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Ejsfdups-!Gjsf!Dijfg!boe!uxp!Sfmjfg!nfncfst/!
!
Discussion
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xf!bsf!dpnnjuufe!up!uif!qbsu.ujnf!gjsfgjhiufst!)dpncjobujpo!npefm*-!boe!uifz!bsf!b!dsjujdbm!
dpnqpofou!up!pvs!efmjwfsz!npefm!boe!tubggjoh/!
!
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boe!gjsf!nbstibm*-!23!gvmm.ujnf!gjsfgjhiufs0qbsbnfejdt!boe!51.61!qbsu.ujnf!
gjsfgjhiufs0FNUt0qbsbnfejdt/!Uif!bduvbm!sptufs!pg!qbsu.ujnf!gjsfgjhiufst!ibt!mpoh!cffo!cfmpx!61!
evf!up!bwbjmbcjmjuz-!boe!b!npsf!uzqjdbm!sptufs!jt!36.46!qfstpoofm!sfbez!gps!evuz/!
!
B!sfwjfx!pg!uif!mbtu!gjwf!zfbst!pg!ipvst!xpslfe!tipxt!uibu!fwfo!xjui!bo!jodsfbtf!jo!efnboe-!
qbsu.ujnf!tubgg!ibwf!mfgu!tijgut!vogjmmfe/!Uif!dibsu!cfmpx!tipxt!uif!dpoujovfe!efdmjof!jo!qbsu.
ujnf!tubggjoh!ipvst!xpslfe-!fwfo!uipvhi!uif!bnpvou!pg!cvehfufe!ipvst!ibt!opu!efdsfbtfe/!
!
Year Hours Worked
3129!37-446/46!
312:!39-282/26!
3131!35-738/31!
3132!34-738/31!
3133!31-377/43!
!!
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Qbhf!272!pg!276
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!
Financial Implications
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!
PERA Coordinated Plan
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Tvswjwps!Cfofgju!
Next Steps
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nfncfst!xip!diptf!opu!up!sf.bqqmz!up!uif!efqbsunfou!boe!bee!up!pvs!ovncfs/!Uif!upubm!
ovncfs!pg!sfqmbdfnfout!offefe!xpvme!opu!cf!lopxo!voujm!uif!ejttpmvujpo!ublft!qmbdf/!Xf!xjmm!
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qspwjefe!xjui!tvhhftujpot!gps!sfdsvjunfou!boe!sfufoujpo!xijdi!bsf!opx!cfjoh!fyqmpsfe/!
!
Recommendation!
Bvuipsj{f!fyqmpsjoh!uif!ejttpmvujpo!pg!uif!Gjsf!Sfmjfg!Bttpdjbujpo/!
!
!
!
!
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Qbhf!274!pg!276
Qbhf!275!pg!276
Qbhf!276!pg!276