HomeMy WebLinkAboutCC 15 O.C.F.D. LAFCO 04-19-93CONSENT CALENDAR NO. 15
AGE,v ``5 � B F_�- -19-93 l
DATE: APRIL 13, 1993 Inter -Com
TO: HONORABLE MAYOR AND MEMBERS OF THE CITY COUNCIL
FROM: WILLIAM A. HUSTON, CITY MANAGER
ORANGE COUNTY FIRE DISTRICT - RESOLUTION AUTHORIZING AN
SUBJECT. APPLICATION TO BE FILED WITH THE LOCAL AGENCY FORMATION
COMMISSION (LAFCO)
RECOMMENDATION•
That the City Council adopt Resolution No. 93-44 endorsing formation of
the Orange County Fire Protection District and the filing of an
application with the Local Agency Formation Commission (LAFCO) for
approval of the formation.
FISCAL IMPACT•
To date, the City Council has authorized the City to pay a proportionate
share of the expense of retaining consultants to prepare feasibility and
financial studies. The expenses have been shared equally by the County
and sixteen cities involved in formation of the Fire Protection
District. The resolution indicates the City will agree to continue to
pay its proportionate share of the expenses associated with formation of
the Fire Protection District. It is expected that any additional costs
will be less than $5,000. The only other cost is the time of the City
Manager who is a member of the Fire Protection District negotiation
team.
The City of Tustin will benefit financially from its continued
participation in the formation of the Fire Protection District. The
proposed Memorandum of Understanding (MOU) between the County and the
cities concerning formation of the Fire Protection District provides
that the cost of fire and paramedic services for cash contract cities
(which Tustin is) will be limited to the cost increase (or decrease) of
fire department operations. A formula was agreed upon by the cities and
County two years ago which has limited increases in the contract price
to amounts equal to or less than the rate of inflation. The City will
have three years from the date of formation of the Fire Protection
District to decide whether to continue to contract with the District,
become a full member or provide fire services through some other means.
Orange County Fire District
April 13, 1993
Page two
DISCUSSION•
The City Council has received periodic reports on the status of the Fire
Protection District negotiations. Attached is an outline of the terms
and conditions agreed upon through City -County negotiations. With an
agreement reached on the major issues, an application can now be filed
with LAFCO which, by state law, must approve formation of the Fire
Protection District. In order to meet the formation goal of January 1,
1994, it is necessary to initiate the LAFCO process as soon as possible.
The sixteen cities need to adopt a resolution endorsing the LAFCO
proceedings. The resolution also:
1. Supports SB 1187 introduced by Senator Bergeson to
"streamline" the Fire Protection District formation process.
2. Approves the MOU between the cities and the County concerning
formation of the Fire Protection District.
3. Approves the method for transferring fire department property
taxes collected by the County to the Fire Protection District.
4. Authorizes the City of Irvine to be the lead agency on behalf
of the sixteen cities by filing an application with LAFCO.
SB 1187 was introduced by Senator Bergeson at the request of the cities
and the County. This bill is needed to deal with technical issues
affecting formation of the Fire Protection District. For example, SB
1187 will ensure that property tax funds collected by the County for the
fire department will automatically be allocated each year to the Fire
Protection District. A copy of SB 1187 is attached.
A copy of the MOU between the County and the cities is attached. The
MOU was purposefully kept concise and covers only the major deal points
needed to proceed with formation of the Fire Protection District. The
operational issues and details of transitioning from the County to a
County -cities governed Fire Protection District are covered in an
Administrative Transition Plan, a summary of which is attached.
With the uncertainty about the State budget, questions have been raised
about the financial feasibility of the Fire Protection District. The
initial studies prepared in 1991 showed that creation. of a dire district
would be financially feasible. There were issues identified that would
have to be dealt with, but that would be the case regardless of how the
fire department is organized. The cities felt it would be better for
them to actually govern solutions to fire department financial issues
rather than defer to the County. This year the fire department did not
lose property tar: revenue to the State because of an exemption included
Orange County Fire District
April 13, 1993
Page three
in SB 844. There is no way of knowing at this point as to whether or
not fire department property tax revenue will be diverted to the State
in 1993-94. The consultants to the cities have prepared a revised
financial forecast which takes into account updated revenue and expense
projections. A copy of the forecast is attached. Based upon the
forecast, the Fire Protection District continues to be financially
feasible. There will be issues that have to be resolved (principally
the cost implications of adding new fire stations in the future), but
these are not of a nature or magnitude that mitigate the feasibility of
the Fire Protection District. If the State takes any action over the
next several months that has a major impact on the feasibility of the
Fire Protection District, the LAFCO application can be delayed or
withdrawn.
From the City of Tustin's standpoint, the advantages of concurring with
formation of the Fire Protection District at this time are:
1. The City will have a three-year period in which to assess how
_ best to provide cost-effective fire and paramedic services to
the community. The MOU with the County and the conditional
approval by LAFCO will result in stable costs for contract
fire services for three years. During the three-year period,
the City can work with the Fire Protection District in
devising a formula for setting the contract price that is
fair, stable and cost-effective. A three-year period was
agreed upon through the MOU because it provides the cash
contract cities and the Fire Protection District sufficient
time to study and decide upon an appropriate course of action.
2. The City's interests are best served by resolving issues
concerning the fire contract with an entity that is governed
by cities. The Fire Protection District's Board of Directors
will consist of six Councilmembers and one member from the
Board of Supervisors.
3. The three-year interim contract arrangement will enable the
City to make an informed decision about whether to continue in
a contractual arrangement with the Fire Protection District,
become a full member of the District or pursue another
alternative.
4. If at the end of the initial three-year contract period (or
other agreed upon time frame) the City decided to become a
full member of the Fire Protection District, then the City
would become eligible to be a member of the District's Board
of Directors. Full membership would entail allocating an
Orange County Fire District
April 13, 1993
Page four
agreed upon percentage of the City's General Fund property tax
to the District in lieu of the current cash contract
arrangement. State law would not permit the City to be a full
member (i.e. eligible to serve on the District's Board of
Directors) unless the conversion to a property tax arrangement
is made.
WAH All—
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D
RESOLUTION NO. 93-44
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF
TUSTIN, CALIFORNIA, ENDORSING PROCEEDINGS TO
FORM THE ORANGE COUNTY FIRE PROTECTION DISTRICT
AND AGREEING TO PARTICIPATE IN ACTIVITIES THAT
ASUPPORT DISTRICT FORMATION
Whereas, the City Council of the City of Tustin, by
the adoption of its Resolution No. 93-44 , dated
. declared its intent to join with other
Orange County cities and the County of orange in the
formation of an independent fire district protection, the
Orange County Fire Protection District, hereafter the
"District", pursuant to the Fire Protection District Act
of 1987 (California Health & Safety Code 13800 et seq);
and
Whereas, it is the intent of the participating
cities and the County that the District will assume all
of the services now performed by the Orange County Fire
Department; and
Whereas, a primary purpose in forming the District
is to provide a means for cities, which comprise
approximately 85% of the population served by the County
Fire Department, and the County to formally share
governance and financial responsibility for the fire
service program; and
Whereas, a committee of City Managers representing
the prospective city members of the District and cash
contract cities has reached a preliminary written
understanding with County officials on matters related to
the formation of the District, the transfer of tax funds
and the transition of service responsibilities from the
County to the District.
Now, Therefore, the City Council of Tustin, having
reviewed the proposed terms and conditions as contained
in Attachment 1: City/County Understanding For The
Formation Of An Orange County Fire District, does by this
resolution hereby:
1. Support special state legislation for the
purpose of creating the District effective no
later than January 1, 1994; and
2. Approve Attachment A: the City/County
Understanding On The Formation Of An Orange
County Fire District; and
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Resolution No. 93-44
Page 2
3. Request the Orange County Local Agency
Formation Commission (LAFCO) to initiate
proceedings to form the Orange County Fire
District pursuant to the Cortese -Knox Local
Government Reorganization Act of 1985, Division
3, commencing with 56000 of the California
Government Code, Section 13800 of the
California Health & Safety Code et seq., and
the provisions of special state legislation
referenced above; and
4. Request the Orange County LAFCO to include all
of the territory within the boundaries of the
City of Tustin within the fire district and its
Sphere of Influence; and
5. Endorse and agree to the transfer of all
structural fire fund taxes that are now
deposited in the Orange County Structural
Fire Fund, and allocated and collected by the
County of Orange from the area within the
proposed District boundaries upon the
formation of the District; and
6. Authorize the City of Irvine to serve as the
lead agency in the filing of a Joint
City/County application to the Orange
County LAFCO, acting on behalf of Tustin, and
all other sponsoring agencies; and
7. Agree to pay a proportionate share of the
expenses associated with formation of the Fire
District, subject to separate action and
approval of the specific proportionate share
amount(s) by this City Council from time to
time.
MARY E. WYNN, City Clerk
MAYOR
MEMORANDUM OF UNDERSTANDING
A CITY COUNTY UNDERSTANDING ON THE
FORMATION OF AN ORANGE COUNTY FIRE DISTRICT
March 11, 1993
The Orange County Cities and the Countv of Orange that are within the boundaries of the Structural
Fire Fund, and cash contract cities that will receive fire services from the proposed Fire District,
understand the terms and conditions contained herein for the formation of the Orange County Fire
District. This understanding generally pertains to the following subject areas only:
1. Risk Management/Liability 7. Governing Board
2. Asset Transfer 8. Cash Contract Cities
3. Fire Station Headquarters 9. Equity
g. Property Tax Transfer 10. Services to be Assumed
5. Development Agreements 11. District Formation
6. Special Legislation 12. Transition Team
RISK MANAGEMENT/LIABILITY (TORT & WORKERS COMPENSATION CLAIMS)
The Fire District shall assume responsibility for incidents that occur on or after the official date of
District formation. The County shall retain responsibility and liability for incidents that occur prior
to the date of District formation. The County shall retain all reserves that have been set aside for
prior incidents.
ASSET TRANSFER
All assets, except the four deactivated stations, shall be transferred to the Fire District at no cost to
the District for the exchange. The Cities understand that the County, or the County through the
Fire District, shall repay prior County Gen,: -al Fund co<ts for fire assets over a multi-year period
of 514.5 million, and acknowledge that repayment began in fiscal year 1992-93. The County
understands that neither cities' or cash contract cities' assets of any kind nor District reserves, or
assets from the sale of the fire station headquarters will be used for this repayment.
Notwithstanding, if SDAF is eliminated, the parties agree to negotiate the source of payment.
amount, and/or other options.
All existing reserves as of the date of district formation are to be transferred unencumbered to the
new district.
FIRE STATION HEADQUARTERS
The Cities understar..i that since there will be a period of time before a district can be formed and
become operrional :he County will continue to pursue options for the disposition of the
Headquarters proper and the acquisition of replacement property. Any proceeds that might be
obtained by disposition of the Headquarters property shall remain with the Fire Department and
shall be transferred to the District. The County shall involve Cities in any and all disposition matters
prior to district formation. Nothing related to the disposition of the Water Street Property shall be
forwarded to the Board of Supervisors without the Cities' concurrence.
PROPERTY TAX TRANSFER
After the official date of the Fire District's formation, there shall be a property tax transfer of all
SFF and the SDAF contributed by the SFF to the SDAF, in accordance with the formula set forth
in Revenue and Taxa:ion Code Section 95 et seq. and Health and Safety Code Section 13896. After
official formation, the Fire District shall receive all property tares levied on its behalf without any
contribution to the SDAF. All parties understand that the property tax (including SFF and SDAF)
may be subject to statutory elimination or reduction, and that the County general fund shall not be
responsible for replacing any funding loss.
DEVELOPMENT AGREEMENTS
Prior to District formation, the County and the Cities shall not approve any new development
agreements or modifications to existing development agreements to the extent that fire services
and/or facilities will be affected thereby without consultation with the Cities and County transition
team prior to approval.
SPECIAL LEGISLATION
The Cities and the County shall jointly seek and support the approval of special state legislation to
form the District.
The Board of Directors of the Orange County Fire Protection District shall 1; .e seven members.
The governing bodies of the County and the Cities within the boundary of the Fire District shall
appoint members and alternates to the Board of Directors.
One member and an alternate shall be selected and appointed by the Board of Supervisors and shall
be current members of the Board of Supervisors. The County at all times shall have a permanent
representative as a member of the Board of Directors. The boardmember and alternate appointed
On ! County Dhdem.'aog: 0":¢e County Fire Diener Pace '_.
by the Countv shall serve a four year term from the date of appointment to January 10 of the fourth
following year.
The remaining six members and their alternates shall be selected and appointed by the City Councils
of the Cities within the boundary of the Fire District. Both shall be City Councilmembers and shall
serve at the pleasure of his or her governing body.
The cities shall determine a method for rotating appointments of the six Board of Director members
representing cities so that all member agencies have an opportunity to designate a member from
their jurisdiction and there is continuity of representation. This method shall be set forth in the
LAFCO terms and conditions, in any transition agreement. or as otherwise agreed to by the member
cities.
Member cities without present representation on the Board and cash contract cities are encouraged
to attend and participate in all open sessions of the Board, but have no vote.
CASH CONTRACT CITIES
The current four cash contract cities ( i.e. Placentia, Seal Beach, Stanton, and Tustin) will not
initially join the Fire District. Instead these cities will agree to continue contracting with the District
for a period of three years following district formation. It is understood that the cities and the
County will limit annual cost of service increases or decreases to the cash contract Cities to an
amount equal to the annual change in the cost of operations calculated with methods currently used
by the Fire Department.
EQUITY
The County and the Cities shall be member agencies in equal standing in the new Fire District. Any
adjustments in future cost to any member agency shall be based on considerations and factors that
are equitable to all members. It is understood that the cost of service shall not be adjusted by
reason of equity for any member agency or a cash contract City for a period of three years from the
date of formation of the District. Any changes in non -property tax revenue sources i.e. fees and
charges, special assessments such as paramedic fees could be made during this three year -rind, as
Ion- as all district territories and cash contract cities participate.
Any future decision by the District to restructure the member agencies' proportionate contribution
toward the cost of fire district operations (i.e. the overall equity question) shall, at a minimum,
require a majority vote of member agencies unless a higher level of participation is required by law.
Cim i CmN U..v -randing: Orange Co nn Fire Uiuncr
t'age ;,
DISTRICT FORMATION
District formation shall be as set forth under special legislation.
SERVICES TO BE ASSUMED
Prior to Fire District formation, the following services or divisions shall be assumed, downsized or
eliminated by the County in its discretion:
weed abatement
2. Emergency Management Division (EMD)
3. Hazardous Materials Programs Office (HMPO)
TRANSMON TEAM
County and City staff shall work together on major transition issues, such as : headquarters location
and continuing tenancy, all major administrative, financial and service policy issues, and report back
to the respective governing boards on progress before decisions on major issues are made.
Approved As To Substance For The
Negotiating Teams:
Karen Davis, Chair Tim Casey, City Mgr., Laguna Hills
County Negotiating Team Chair, City Negotiating Team
COUNTY:
Dated: 1993 County of Orange, a political
subdivision of the State of
California
E
Chairman of Its Board of Supervisors
Ciro' County Cndemandmg: Orange Cawrp' Fire Dws ,, Page 4.
Signed And Certified That A Copy Of This
Document flan Been Delivered Phvllis A. Henderson
To The Chairman Of The Board Clerk of the Board of Supervisors
APPROVED AS TO FORM: By
Terry C. Andrus, County Counsel
( Dated:
CITY:
Dated: ,1993
ATTEST:
APPROVED AS TO FORM:
Cine of
Carol D. Brown. Deputy
MAYOR
Citv Clerk
( City Attorney
(
( Dated: _
Cm i Coann. Undemanding: Orange CoonnFire Drsmcr
1993
1993
California
Nee
SPECIAL LEGISLATION
•
•
FIRE PROTECTION DISTRICT LAW OF 1987
CHAPTER 12
ORANGE COUNTY FIRE PROTECTION DISTRICT
13983. Legislative Findings.
In enacting the Fire Protection District Law of 1987 the
Legislature found that the local provision of fire protection
services is critical to the public good and part of the California
tradition. One method of local control is formation of fire
protection districts and the Legislature has encouraged communities
to adapt the powers and procedures in the Fire Protection District
Law to their own needs.
The Legislature now finds and declares that the formation of
the Orange County Fire Protection District presents a unique
situation more similar to the transfer of governance from the Board
of Supervisors to the Board of Directors of a fire protection
district. With rapid growth and development, and several recent
City incorporations within the service area, the Orange County Fire
Department may be seen as similar to a fire protection district for
multiple cities and unincorporated areas, although the cities have
not been represented in the provision of services. The County and
cities now wish to provide for an independent district board
composed of County and City representatives. The existing
services, employees, facilities and assets will transfer to the
district as agreed to by the parties in accordance with the LAFCO
terms and conditions.
FS2\482\099999-0071\2026898.5 03/05/93
•
•
The Legislature finds also this bill is necessary to meet a
specific, unique situation within Southern Orange County because of
rapid growth recent incorporations and pressing regional fire
issues, including funding. It hereby is declared that a general
statute cannot be made applicable within the meaning of Section 16
of Article IV of the California Constitution and that the enactment
of this Chapter as a special law is necessary for the solution of
such issues now existing in Orange County.
13984. Interpretation.
To the extent any provision of this chapter is inconsistent
with the provisions of this part or any other statute, as they may
be amended from time to time, the provisions of this chapter shall
apply.
The provisions of Health & Safety Code Sections 13841, 13843,
13845, 13846 and 13847 through 13852 shall not apply to this
district. Notwithstanding any law to the contrary, no City
Councilmember or other City officer or employee shall be determined
to have a conflict of interest as a result of service on or
employment by the District.
13985. Formation.
The Orange County Fire Protection District shall be formed
effective upon LAFCO's filing of a certificate of completion.
Notwithstanding any provision of law to the contrary, its initial
appropriations limit shall be that limit as determined by the Local
Agency Formation Commission.
FS2\382\099999-0071\2026898.5 03105193
13986. Board of Directors: Number. Selection and Terms.
The Board of Directors of the Orange County Fire Protection
District shall have seven members. The governing bodies of the
County and cities within the district shall select and appoint all
members and alternates of the board of directors.
A. County Members.
One member and an alternate shall be selected and appointed by
the Board of Supervisors and shall be current members of the Board
of Supervisors. The County Board of Supervisors at all times shall
have a permanent representative as a member of the Board of the
District. In the absence of that member, the alternate shall serve
in the same manner.
B. City Members.
The remaining six board members and their alternates shall be
selected and appointed by resolution of the City Councils of the
all cities included within the boundaries of the district. Each
such boardmember and alternate must be a city councilmember of one
such city and shall serve at the pleasure of his/her appointing
body.
C. Terms.
The boardmember and alternate appointed by the County shall
serve a four year term from the date of appointment to January 10
of the fourth following year. The cities shall determine a method
for rotating appointments of the six Board of Director members
FS2\482\099999-0071\2026898.5 03/05/93
representing cities so that all member agencies have an opportunity
to designate "a member from their jurisdiction and there is
ccntinc'_ty of representation. This method shall be set forth in
the LAFCO terms and conditions, in any transition agreement, or as
otherwise agreed to by the member cities. Each year immediately
preceding the expiration of a boardmember or alternate's term, the
County or cities within the district shall appoint or reappoint
boardmembers.
13987. Board Vacancies.
In the event a district boardmember or alternate ceases to be
a County Supervisor or City Councilmember, or the office becomes
vacant by reason of death, disability or resignation, the governing
body of the County or cities shall fill the vacancy in the same
manner as set out in §13986.
13988. Orange County Fire Protection District Contribution to
SDAF.
Notwithstanding Revenue & Taxation Code § 98.6 and pursuant to
the decision in American River Fire Protection District v. Board of
Sunervisors (1989) 211 Cal.App.3d 1076, for the fiscal year of its
formation and for each fiscal year thereafter, the amount of
structural fire tax allocated to the Orange County Fire Protection
District pursuant to Revenue & Taxation Code §§ 95 gr. sea. and
Health & Safety § 13896 as those may be amended from time to time,
shall not be reduced pursuant to Revenue & Taxation Code § 98.6 and
there shall be a property tax transfer of all structural fire fund
FS2,382\099999.0077\2026898.5 03105193
taxes and Special District Augmentation Funds so that the District
receives a'_1 aroperty taxes levied on its behalf without
contribut_on to the Specia'_ District Augmentation Fund.
13989. Powers of Orange County Fire Protection District:
Except as modified by this chapter. the Orange County Fire
Protection District shall :ave the purposes and powers of a fire
protection district organized and operated pursuant to the Fire
Protection District Law of _987 (Health & Safety Code Section 13800
et sem.) as it may be amended f_om time to time but only to the
extent that such amendments do not supersede or otherwise modify
the specific provisions of the chapter.
FS' 482 099099-0077=6899.5 03105/93
ADMINISTRATIVE TRANSITION
PLAN SUMMARY
• Attachment A - Factual Profile Summary Orange County Fire Department
• Attachment B - Proposed Organization of Fire District
• Attachment C - Implementation Plan Outline
ATTACHMENT A
SUMMARY OF FACTUAL PROFILE
An essentiai'irst step in the development of this administrative transition plan was a careful
documentation of current administrative services. This effort resulted in the preparation of
a factual protile which is included as Appendix A of the report. A summary of this factual
profile is presented below.
ADMINISTRATIVE SERVICES IN PERSPECTIVE
Existing financial and administrative services for the Orange County Fire Department are
provided by nvo departmental bureaus-- Administration and Support --which i� �rface with
numerous County departments. The Financial Services Section of the Au;ninistration
Bureau is responsible for general accounting, payroll, purchasing, budget monitoring, fee
administration, contract administration and preparation of numerous reports. The
Administrative Services Section of the Administration Bureau has primary responsibility for
budget preparation, facilities management, and a variety of studies and reports. Personnel
Services also is a section of the Administration Bureau. Data Services, Communications,
Automotivei'Service Center and Training services are provided by the Support Bureau.
COUNTY INTERFACE
The above bureaus and sections interface with the following County Departments: CAO;
Auditor -Controller; Treasurer's Office; County Counsel; Personnel; GSA/Purchasing:
GSA/Real Estate; GSA/Facilities; GSA/Architecture and Engineering; GSA Transportation;
and GSA/Communications. See Exhibit 1 for a graphic presentation of these relationships.
ADMINISTRATIVE SUPPORT PERSONNEL AND COSTS
Administrative support for the Fire Department is provided by 138.5 positions at a budgeted
cost of (1992-93 proposed budget) $9,826,771. For County services provided, the Fire
Department is charged an addition $3,830,959 (FY 1991-92 budget). Therefore, total cost
for all administrative support is $13,657,731. Of this amount, County direct charges
represent approximately 28% of the total, while the Fire Department budget represents
approximately 72% of the total.
Administrative costs are presented in Exhibit 2 for each activity separated into salary and
employee benefits, services and supplies, directly related equipment, and where applicable,
direct County charges.
EXHIBIT I
ORANGE COUNTY
FIRE PROTECTION DISTRICT
COUNTY
ADMINISTRATIVE
OFFICER
i
COUNTY AUDITOR
COUNSEL CONTROLLER
DIRECTOR OF FIRE SERVICES
.......... .........
• ADMIN • '`SUPPORT .
' BUREAU ' ' BUREAU ' Y
. ..f.... M.N..KN
PERSONN EI TREASURER
GENERAL SERVICES
AGENCY
Purchasing Facilities
Real Estate-ransportation
A S E Communications
ORANGE COLT a FIRE STUDY
GENERALSVCS
DATA SVCS 9 S & EB
1992.'93 Proposed Budget
S & S
GYI11131T 2
SERVICE CONTRACTS/POs
Administrative Support Costs
DIRECTLY RELATED SVCS
$437,597
EQUIPMENT
BUDGETED '
FY 92193
TOTAL BUDGET &
ACTIVITY
POSITIONS CATEGORY
BUDGET
COUNTY Cl IARGF_S
.AUTONI 17 S & EB
$859,298
S & S
ADMIN SVCS
15 S & EB
$696,081
DIRECTLY REL,% ED SVCS
$983,082
S & S
$70,410
SUB—TOTAL
$1,875,127
SERVICE CONTRACTS/POs
$328,398 E
TOTAL
52,203.525
DIRECTLY RELATED SVCS
$75,000
EQUIPMENT
$22,500
SUB—TOTAL
$863,991
COUNTY CHARGES
$1,316.554 A
TOTAL
$2,130,515
FINAN SVCS
29.5 S & EB
$I,'_09,8?3
S & S
$138,439
SERVICE CONTRACTS/POs
DIRECTLY RELATED SVCS
$0
EQUIPMENT
$19,400
SUB—TOTAL
$1,367,662
COUNTY CHARGES
$1,228,000 B
TOTAL
$2595,662
PERSON SVCS
2 S & EB
$65,116
S & S
$22,283
SERVICE CONTP—ACTS/POs
DIRECTLY RELATED SVCS
$0
EQUIPMENT
$6,797
SUB—TOTAL
$94,196
COUNTY CHARGES
$537,114 C
TOTAL
$631,310
GENERALSVCS
DATA SVCS 9 S & EB
$556,175
S & S
$88,816
SERVICE CONTRACTS/POs
DIRECTLY RELATED SVCS
$437,597
EQUIPMENT
$534,763
SUB—TOTAL
$1,617,151
COUNTY CHARGES
$30,000 D
TOTAL
S1,647.3,51
.AUTONI 17 S & EB
$859,298
S & S
$21,547
SERVICE CONTR: ; C'TS/POs
DIRECTLY REL,% ED SVCS
$983,082
EQUIPMENT
$11,200
SUB—TOTAL
$1,875,127
COUNTY CHARGES
$328,398 E
TOTAL
52,203.525
nRANGF COUNT\FIRIf STUDY
1992/93 Proposed Budgci
Exif i BiT 2
Administrative Suppon Costs
BUDGETED•
FY 92193
TOTAL BU DGET&
ACTIVITY
POSITIONS
CATEGORY
BUDGET
COUNTY CHARGES
SERV CTR
11
S & EB
5396,403
S & S
510,767
SERVICE CONTRACTS/POs
DIRECTLY RELATED SVCS
$159,500
EQUIPMENT
512.000
SUB—TOTAL
5578,670
TOTAL
5578.6"0
COMMUN
27
S & EB
51,265,810
S&S
S119d49
SERVICE CONTRACTS/POs
DIRECTLY RELATED SVCS
556,500
EQUIPMENT
5145.100
SUB—TOTAL
S 1.586,859
_
COUNTY CHARGES
5315,460 F
TOTAL
51.902.3i9
TRAINING
10
S & EB
5565,094
S & S
$37,074
SERVICE CONTRACTSMOS
DIRECTLY RELATED SVCS
553,385
EQUIPMENT
$29.900
---
SUB—TOTAL
$685,453
TOTAL
5685,453
EMS
3
S & EB
$163,756
S & S
528.462
SERVICE CONTRACTS/POS
DIRECTLY RELATED SVCS
$85,000
EQUIPMENT
SUB—TOTAL
$277.218
TOTAL
S277.218
PIO
5
S & EB
$239,657
S & S
$70,360
SERVICE CONTRACTS/POs
DIRECTLY RELATED SVCS
SO
EQUIPMENT
528,400
SUB—TOTAL
5338.417
TOTAL
5338.417
r R,%Nkl'(GUN"ll"IIRLSI DI'
10'1_;93 PmpcnN BudBtt
EXIIIBIT'_
ACm,mstratrvc Support Costs
BUDGETED•
FY 92J93
TOTAL BU DGET&
ACTIVITY
POSITIONS
CATEGORY
BUDGET
COUNTY CHARGES
PCF COORD
3
5 & EB
5163,756
S & S
$16.134
SERVICE CONTRACTS/POs
DIRECTLY RELATED SVCS
SO
EQUIPMENT
$1,940
SUB—TOTAL
5181.830
TOTAL
I181,630
STAFFING DESK
3
S & EB
5111,738
S & S
512,634
SER VICE CONTRACTS/POs
DIRECTLY R ELATED SVCS
10
EQUIPMENT
SO
SUB—TOTAL
$124,372
TOTAL
S124,372
RESEARCH
1
S & EB
545,336
S & S
$12,472
SERVICE CONTRACTS/POs
DIRECTLY RELATED SVCS
$0
EQUIPMENT
SO
SUB—TOTAL
557,808
TOTAL
557,808
LEGISLATION
1
S & EB
$35,320
S & S
$12,472
SERVICE CONTRACTS/POs
DIRECTLY RELATED SVCS
SO
EQUIPMENT
SO
SUB—TOTAL
547,792
TOTAL
547,792
BUREAU STAFF
2
S & EB
5110,668
ANALYSTS
S & S
59,358
SERVICE CONTRACTS/POs
DIRECTLY RELATED SVCS
SO
EQUIPMENT
SO
SUB—TOTAL
S120,026
TOTAL
S120.026
f)R:ANGE COON T -Y FIRE STUDY
1991193 Proposed Budget
Administrative Support Costs
BUDGETED • FY 92193
ACTIVITY POSITIONS CATEGORY BUDGET
HMDO COUNTY CHARGES
TOTAL
139.5
* Budgeted posit ions per 4-1-92 organize ion chart. Financia l Services figure
corrected to reflect actual number of positions shown on organization than
EXHIBIT
TOTAL BUDGET R
COUNTY CHARGES
$75,443
S9.816.772 $13,647,741
ORGANIZATION AND STAFFING FOR ADMINISTRATIVE SERVICES
As indicated previously. support services are provided by 138.5 positions. These positions
are from two hure;ius -Administration and Support. Organization charts for each bureau
are presented as Exhi^it 3 and 4.
HUMAN RESOURCES
The Orange County Fire Department consists of approximately 840 full-time personnel as
well as 630 Paid -Call Firefighters. The Personnel Services Section of the Administrative
Bureau is responsible for recruitment/selection, job evaluation/classification, labor relations,
benefits, retirement, %%orkers compensation/risk management, training, EEO/Affirmative
Action and personnel records.
STAFFING
Personnel services are provided by a Fire Personnel Service Team consisting of a Personnel
Manager, Assistant and two Senior Personnel Coordinators all of whom are assigned from
the County's Personnel Department. In addition, there are two office support staff who are
Fire Department employees. The Personnel Manager reports to the Assistant Director of
Fire Services/Administration.
COST
The total operating cost for personnel is $631,310. Of this amount, $537,114 is a County
charge for staff and directly related services.
FINANCE
The Financial Services Section of the ,Administration Bureau is responsible for general
accounting, payroll, purchasing, budget monitoring, contract administration and fee
administration. These services are provided in conjunction with several County agencies:
CAO; Auditor -Controller; Treasurer's Office: GSA Purchasing.
STAFFING
Although some activities overlap, the 29.5 full-time positions of Financial Services are
organized as follows: Manager 1; Secretary 1: Fee Administration 7; Budget
Monitoring/Cost Recovery 6.5; Pavroll 8; Purchasing 4; Supervision for Payroll and
Purchasing 2.
COSTS
The total operating cost for finance is 52.595.662. Of this amount, $1,367,662 is a County
charge for the services of various County agencies.
ADMINISTRATIVE SERVICES
The Administrative Services Section of the Administrative Bureau is responsible for budget
preparation and facilities management and maintenance. In addition, a variety of
management studies are prepared and clerical support is provided. These services are
provided in conjunction with the following County agencies: CAO; Auditor -Controller:
GSA/Facilities: and GSA/Architecture and Engineering.
STAFFING
Although some activities overlap, the 15 full-time positions of the Administrative Services
Section are oreanized as follows: Manager 1; Secretary 1; Budget 4; Management
Studies/Clerical 6: Facilities Management 3.
COSTS
The total operating cost for Administrative Services is $2,180,545. Of this amount,
$1,316.554 is a County charge for a variety of services including facilities management,
inmate labor and architectural and engineering services.
GENERAL SUPPORT SERVICES
The Support Bureau provides a variety of services, including communications, data services.
automotive and equipment repair and maintenance, training, and emergency medical
services. In addition, the Automotive Service Center orders, stores, and delivers certain
materials and supplies, and also monitors a variety of contracts related to auto and
equipment maintenance. These services are provided in conjunction with GSA/Purchasing;
GSAiTransportation; HCA; Auditor -Controller; GSA/Communications; GSATacilities;
GSA/Architecture and Engineering.
STAFFING
Full-time positions for each division is as follows: Data Services 9; Communications 27;
Automotive Service Center 28; Training 10; Emergency Medical Services 3. In addition,
numerous Paid -Call Firefighters and some part-time positions assist in providing these
services.
COSTS
The total operating cost for General Support Services is $7,304,536. Of this amount.
$673,858 is a County charge. More specifically, the costs for each service area are as
follows:
Data Services
$1,657,351
Automotive
2,203,525
Service Center
578,670
Communications
1,902,319
Training
685,453
EMS
277.218
TOTAL
$7,304,536
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FINANCIAL FORECAST UPDATE
OVERVIEW: FINANCIAL FORECAST UPDATE
PROPOSED ORANGE FIRE DISTRICT
The initial feasibility study for the proposed Fire District was completed October, 1991. The
financial data utilized for the study was largely based on 1990-91 and 1991-92 fiscal years
budgets and fiscal reports, although some data from earlier years was also used to assess
historical trend lines. The feasibility study resulted in an overall conclusion that, assuming
continuing availability of revenues traditionally received by the County Fire Department, it
would be financially feasible to form a Fire Protection District serving the same agencies
with at least the same level of service.
During the past year several events have occurred that could potentially effect the fiscal
viability of proceeding with district formation as follows:
a. State tax policies have changed impacting both current and future revenues
sources for a fire district.
b. Property tax growth due to continuing economic depression has not met
projections.
—.
C. The County began a multi-year process of repaying up to $14.5 million for
prior general fund investments in the fire service program. A first year
payment has been made during the current fiscal year by the transfer of $ 3.13
from the Special District Augmentation Fund to the County General Fund.
d. The four cash contract cities, while not ready to join the district have indicated
their willingness to continue contracting with the district for a period of three
years following district formation, while the questions over equity are resolved
e. The City Manager's Negotiating Team has reached a preliminary agreement
with the County (subject to review by the full City Manager's Committee) on
the major transition issues.
FINANCIAL FEASIBH= OF DISTRICT FORMATION
The events listed above have been analyzed and an "Update" to the :)riginal financial
forecast has been prepared. Exhibit A, includes a summary of the Financial Forecast
Update. The update summary includes the original (November, 1991) forecast, new base
year data reflecting Fire Department responses to the events of the past six months, a list
of existing reserve accounts that were not itemized in the original forecast and "an average
annual" projection for the ten year forecast period.
Reductions have been made to both operating revenues and appropriations. Reductions
were made in property taxes to reflect both the change in state tax policies and a slower
than projected growth in assessed valuation due to the continuing economic recession. The
original projections for the capital and operating costs for new fire stations have also been
revised downward. reflecting a lesser demand during the ten year forecast period due to the
slower pace of growth within the service area.
The original forecast concluded that the Fire District would incur an approximate $ 2.1
annual operating deficit ASSUMING that all preliminary plans for constructing and
operating new stations actually occurred and that additional revenue sources were not
provided. This calculation also did not take into account the availability and use of the
reserves. Also, on an annual operating basis, excludin the impact of new station costs, the
original forecast reflected an average annual surplus of approximately $ 9.5 million.
In the revised forecast an average annual operating surplus of approximately $ 4.8 million
is projected. As with the original forecast, an annual deficit (approximately $ 2.5 million)
would occur when the impact of planned new station construction and operating costs are
taken into consideration. However, the total projected beginning reserve balance would
offset any deficits that could occur due to expansions. A more likely scenario is that the
District will tailor actual expansions to available revenues.
So far, the Fire Department is accommodating the reductions in revenue by reducing
operating expenses accordingly. The initial assessment of feasibility has not materially
changed. Whether the fire service program is managed solely by the County, or jointly by
the cities and the County through a fire protection district fiscal feasibility for forming the
District is not affected.
It is emphasized, however, that the fiscal status of a fire district is dependent on the transfer
of all reserves to the new district. The preliminary agreement that has been reached
between the City Manager's Negotiating Committee and County officials provides for the
full transfer.
IIvIPACt OF REVISED STATE TAX POLICIES
As a result of changes made to S.B. 844 during the closing hours of action on legislation to
implement the 1992-93 State Budget Act, fire districts and departments that depend upon
"structural fire fund" revenue were spared the full impact of the property tax transfers that
were made. Structural fire fund revenue was excluded from the calculation of total revenues
that are subject to the reductions that took place for special districts.
The impact of this exclusion is significant. For example, if the exclusion is repealed for the
current year, the County Auditor Controller has estimated there would be a further
reduction in property tax revenue of up to $7.1 million.
There is a continuing interest at the state level for eliminating all vestiges of "bailout" for the
Proposition 13 era. This includes eliminating the Special District Augmentation Fund, and
presumably, transferral of the revenue to schools. Should this occur it will affect fire districts
statewide. Contra Costa County, for example, is considering the imposition of benefit
assessments ranging from $200 to $400 per year per single family unit to.replace income that
— would be lost if SDAF funds are eliminated.
IMPACT OF LOWER ASSESSED VALUE GROWTH
Most property tax supported entities in Orange County are receiving less income than
anticipated form property taxes due to lower growth in assessed values. The base year in
the revised forecast has been adjusted to reflect a reduction of approximately $ 1.6 million
as reported by the Auditor Controller. Average annual growth has been reduced from 8%
in the original forecast to 4.75% (nominal dollars including inflation at 3.0% down from
4.5% in the original forecast).
REPAYMENTS TO THE COUNTY GENERAL FUND
The draft Memorandum of Understanding on County to District transfer issues reflects an
understanding that the County will repay up to $14.5 million over a multi-year period for
prior County General fund contributions to the Fire Department.
The $ 3.13 million already transferred this year is not included in the forecast of Fire District
expenses or revenues since it is intended that these payments be made from SDAF revenues
that would not otherwise be available to the Fire Department or District. The MOU,
however, includes a provision that in the event the SDAF program is eliminated the source
and amount of the repayment will be negotiated.
OTHER REVISIONS TO THE FORECAST
In addition to the changes in property tax revenue, the updated Forecast also includes
downward adjustments in several other expense and revenue categories. These changes
include:
a. Updated actual experience in the receipt of fire prevention fee income, and
changed assumptions about contract service income. Fire prevention fees had
been in effect only 30 days when the original forecast was made.
b. Changed actuarial calculations made by the retirement system.
C. Actual reductions in wage related costs due to the elimination of
approximately twenty three safety positions this year and further planned
reductions in both safety and non -safety employment categories.
d. Reductions in materials, supplies, and vehicle replacement cost based on
based on the actual and planned expense reductions being made by the
department in response to lower revenues.
e. Developer fee expenses and income have been equalized in the forecast
update since these cost/revenue transactions are offsetting over time and have
no negligible fiscal impact.
SUMMARY OF FINANCIAL FORECAST UPDATE
ORANGE COUNTY FIRE DISTRICT'
JANUARY. 1993
CATEGORY
nginaForecast
Ease -.. Average CD,
year loyears
91-92 Ending
Balance .Inco
Projected
:.Contribution
ToReserves
Total
Prior Year Total
.Areilade Available
Base
Year
-orecasl
Avearage@
loye..
REVENUE
102,920
73,455
Vehicles (new -mains.)
361,267
285,333
Subtotal
11,674,419
7,331,184
Annual Balance after new facili tieshtalfm
2138 W
Fire Operations (l2l I)
Fund Balance Available
11.268 592
5,204,823
12,136,198
0
0
12,136,198
2.107772
2.087.020
Property Tax
61,712.668
74,997.370
0
59378,866
0
59,378.866
59378,860
69.703,899
Cash Contracts (cities)
10.052,205
10,632,051
0
12,058353
0
12,058353
12.058153
10.632.051
Other Contracts &Reimbursements
3,904576
3,904576
0
2,294,906
0
2.294,906
2294406
2100,000
User Fees
1,027,986
2,073,251
0
620.000
0
620,000
620,00
925,OW
Other Revenue
598,265
1,407,220
0
1327,159
0
1,327,159
1327,159
1407220
Subtotal
88564,292
98,219,291
12,136,198
75,679,284
0
87,815,482
77,787,056
87,055,190
Other Fund Revenue
Fre ACO (1231)
7,162241
0
5,367,129
3,185,248
0
8552,377
3.185,248
0
Vehicle Replacement (1232)
3,104355
148,808
1,040,163
2,706,945
0
3,747,108
2,706,945
159.060
Communications (1241)
283,290
283,290
48,202
250,000
0
298,202
250.000
283,290
Developer Fees (1421)
1,694,248
1,372539
733,119
389,656
0
1,122,775
389,656
823,523
Emergency Management (0121)
779,111
779,111
0
0
0
0
0
0
Haz. Mat. - Disclosure (02.55)
615,638
615,638
0
0
0
0
0
0
Haz. Mat. - Programs (0260)
539,480
539,480
0
0
0
0
0
0
Subtotal
14,178363
3,738,866
7,188,613
6531.849
0
13,720,462
6-531,849
1.265,873
TOTAL REVENUE
102.742,655
101,958,157
19,324.811
82,211,133
0
101.535,944
84.318,905
88321.063
APPROPRIATIONS
Fre Operations
Salaries & Benefits
64,678,491
66,484,098
61,606,160
0
61.606,160
0
0
59.701,827
61,992,000
Services&Supplies
12.823,114
13,181,093
12,242,453
0
12,242,453
0
0
11,771,673
11275.200
Other Charges
608,815
60.882
610.426
0
610,426
0
0
610,426
0
Equipment
1.855591
1,960,772
1,856560
0
1,856560
0
0
1.809,187
1,961.648
Reserves (Miscellaneous)
8-598.281
0
0
8,369,978
8369,978
9,092,851
17,462,829
0
0
Subtotal
88564292
81,686,845
7631.5 599
8,369.978
84,685577
9,092,851
17,462.829
73,893.113
75,228,848
Other Funds
Fire ACO
7.162.241
4,040,780
7,167,241
1385,136
8552377
0
1385,136
7,167241
4.010,780
Vehicle Replacement
3,104355
3,104355
2216,408
1-530.700
3,747,108
200.096
1.730.796
2216,408
3,104355
Communications
283,290
283,290
0
298,202
298,202
3,690.146
3,988.348
0
283,290
Developer Fees
1,694248
1372539
1,034,119
88,656
1,122,775
453.990
542,646
1.034,119
823-523
Emergency Mgmt.
779,111
779,111
0
0
0
0
0
Haz. Mat. - Disclosure
615,638
615,638
0
0
0
0
0
Haz. Mat. - Program
539,480
539,480
0
0
0
0
0
Subtotal
14,178363
10,735,193
10,417,768
3302,694
13,720,462
4.344232
7,646.926
10,417,768
8251,948
Asset Transfer Appropriation
0
0
3,129,905
0
3,129,905
0
0
TOTAL APPROPRIATIONS
102,742,655
92,422,038
89.863272
11,672,672
101535,944
13,437,083
25,109,755
84310,881
83,480,796
Annual Balance before newcom anies
0
9,536,119
(7,652,139)
0
8024
4840267
ANNUALCAPfrAL&OPERA?IN0006"1'SPORNBWTrAT70NS'.
;Original Forecast
Revised Forecast
New Company Cost (after 1992-93)
10,262,251
6,342.396
New Station Construction
947,981
630.000
Vehicles (new)
102,920
73,455
Vehicles (new -mains.)
361,267
285,333
Subtotal
11,674,419
7,331,184
Annual Balance after new facili tieshtalfm
2138 W
(24, 9 ,0917
171
rn
S