Like most fire chiefs, most of my career has required that I work closely with city managers (CMs). Working with CMs is one of those things you hear a lot of chief officers complain about. A common complaint: “Managers don’t understand the challenges of running fire departments or our unique culture; they simply care about the bottom line.” I believe that many of these complaints stem from a failure to understand the difference between CMs’ jobs and fire chiefs’ jobs.
If you’re a fire chief or aspire to be one, especially for a city, being able to work with CMs is an essential survival skill. In this article, I’ll share some of the differences I’ve observed between CMs and fire chiefs, as well as suggestions on how to most effectively work with CMs.
Disclaimer: Considering the brevity of this article, I’m going to paint both roles with a broad brush to illustrate the generic differences in style, decision-making and philosophies.
Philosophy & Decision-Making
CMs and fire chiefs differ when it comes to philosophy and decision-making:
- CMs are isolationists; fire chiefs are regionalists. Chiefs rely on their neighbors to assist with mutual aid and disaster preparedness, but CMs are the ultimate protectors of the city and local control and thus usually don’t cooperate with regional initiatives. A good way to break down these barriers: Share current departmental regional endeavors that don’t cost the city money but enhance service. Examples: Regional hazmat and training programs, fire investigations and automatic aid.
- Fire chiefs have a propensity for action; CMs avoid making decisions. I’ve been told by more than one CM that the key to decision-making is “not to have to until you have to.” The CM decision-making process consists of analyzing, waiting and reanalyzing–seldom deciding, because they know that they can be sent packing if the audience–council, special interest, powerful community leaders, etc.–isn’t happy with the outcome. Chiefs, on the other hand, will move ahead, often without permission, and apologize later if necessary. This can sometimes put you in the CM’s crosshairs, especially when you haven’t considered all the stakeholders and the short- and long-term consequences. Tip: I’ve found that CMs read everything you give them, as long as it’s not too long. Updates or written briefings can assist them in making the eventual decisions.
- The CM spends a lot of time attending meetings and providing information to committees to allow them to make the appropriate decisions. The fire chief’s role in most meetings is to be decisive (and to be seen as decisive). Tip: If you know the purpose of these meetings in advance and there’s a fire component, even if it’s a minor one, prepare speaking points for the CM.
- CMs (and all other city employees) come to their positions with the necessary prerequisite education and knowledge to do their jobs. As a result, they chafe at training costs. Again, some education can help–briefly lay out EMS CE requirements, as well as the need for training to meet NFPA standards and NIOSH regulations. Show where your department is investing in cost-effective training solutions.
Expertise & Alliances
Chief officers can develop apathetic feelings toward CMs–“He came from outside the city, focuses exclusively on the budget and only listens to the finance director.” Again, a little insight can help you tailor your message and information to best work with the CM.
- The CM is ill informed to discuss major fire service issues–so don’t expect them to. CMs have too many demands on them to be fully knowledgeable in any one area. That’s why you should feed the CM pertinent information in small bits over a long period of time. Example: Explain common fire service terminology–draw down, standard of cover, automatic aid, patient outcomes, ISO, mutual aid, IC, etc.
- The CM’s best friend is the finance director. Collectively, they control the city’s budget and spending. The fire chief’s best friend is the police chief. Together, they’re responsible for more than 50 percent of the city budget. As I mentioned in “The First 100 Days” (April FireRescue, p. 88), as a chief officer you should consider reaching out to the finance director and building a strong relationship with them.
- CMs have short life cycles within each agency, and they typically come from outside the city/organization, while fire chiefs typically have the longest tenure of any of the department heads and usually the longest tenure within the city. Traditionally, the CM is hired by the council and is subject to removal at any time by a majority vote of the council.
If possible, establish a personal relationship with the CM. Remember the value of advocates and allies (“The Politics of Power,” http://tinyurl.com/powerpolitics). Be professional and try to base your decisions upon data and your professional opinion, not emotions. If you sense there’s any distrust between the CM and you, remind them that you’re there to support them. You’ll give them advice on matters, but you’ll carry out their direction even if you disagree with it.
The Research
The above observations are based on my personal experience, but several studies of CMs and reports from the International City/County Management Association (ICMA) provide some additional insight.
According to Lineberry and Sharkansky (1974), in the early days of the council-manager plans, most managers were civil engineers by training. Today, city managers tend to be highly educated, well-paid, mobile professionals (Desatis and Newell 1996). Only a minority are from the cities in which they work; 86 percent are hired from outside the community (Renner 1990). Fair or not, CMs can be credited for their city’s economic conditions or blamed for their failures. ICMA reported in 2000 that CMs themselves identify economic development as one of the most important issues facing their jurisdictions.
CM tenure is at times tenuous, due in part to the basic structure of career paths in city management. Termination, voluntary or involuntary, often results from political disputes, which are linked to “push or pull” factors. Push factors prompt managers to leave their current positions because of political conflict. Pull factors entice managers to leave their current position for professional, financial or personal advancement (DeHoog and Whitaker 1990).
Although fire chiefs also deal with the political nature of their roles, their job security relies much less on the political winds.
A Final Word
Strive to understand how the needs of the fire department fit in with those of the whole community, as well as how you can contribute to the CM’s success. When you find yourself frustrated with specific decisions or the lack of action, consider why the CM is acting this way. It’s easy to think they’re deliberately trying to make life hard for you–but that’s rarely the case. Their jobs are hard enough already.
