HomeMy WebLinkAboutMINUTES - 10151991 - H.3 H r 3
THE BOARD OF SUPERVISORS OF CONTRA COSTA COUNTY, CALIFORNIA
Adopted this Order on October 15, 1991 by the following vote:
AYES: Supervisors Schroder, McPeak, Torlakson, Powers
NOES: None
ABSENT: Supervisor Fanden
ABSTAIN: None
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SUBJECT: Workshop on Fiscal Issues of Fire Districts
The Chair convened the workshop on budget issues, finances, and
consolidation of fire districts. Phil Batchelor, County
Administrator, advised that the scope of the workshop is to review
the status and finances of the fire districts that the Board of
Supervisors has responsibility for, to look at what has been done to
keep the budget in balance, to look at some of the efficiencies that
have been implemented, to consider the feasibility of consolidating
fire districts, and to consider some additional actions that will
need to be taken in the future.
The presentations of Mr. Batchelor and Chiefs Cooper, Maxfield,
Cormier, and Hein addressed the following issues:
- The budget for fire service;
- Special District Allocation Fund (SDAF) allocations compared
with tax growth for the 1990-1991 and 1991-1992 fiscal years;
- Steps taken to eliminate anticipated operations deficit;
- Firefighter salary increases;
- Fire district capital issues;
- Other unfunded demands that could impact fire district
finances;
- Possible actions to help resolve funding problems;
- Consolidation considerations;
- Service improvements implemented since the Ryland Study; and
- Issues pertinent to specific geographical areas in the
County, i.e. , Central County, Central/East County, West
County, and East County.
In his presentation, Chief Cooper proposed a list of revenue
enhancements, such as, implementation of uniform, countywide fire
prevention fees ; increasing weed abatement administrative fees as
warranted; implementation of user fees for fire code violators when a
fire occurs (SB 208, 1987) ; studying the feasibility of implementing
an infraction (fine) system for fire code violations; implementation
of a standardized cost recovery system for response to alcohol and
drug related accidents (SB 735, 1985) ; implementation of a
standardized false alarm fee schedule; continuing the pursuit of SB
90 reimbursements from the State; exploring the feasibility of
insurance company reimbursement for salvage services; exploring the
feasibility of implementing a hazardous materials response fees/fine
sharing procedure; and requesting Measure H funding for medical
supplies and Opticom.
Chief Maxfield presented two policy recommendations: ( 1) Obtain
specialized legal counsel to explore obtaining redevelopment funds as
a total pass through to the County fire service; and ( 2 ) change the
distribution of the Special District Augmentation Fund (SDAF) to
reflect actual contribution ratios from fire and non-fire agencies.
In commenting on Chief Maxfield' s second policy recommendation,
the County Administrator expressed reservations because of potential
consequences to the Sheriff ' s patrol in the unincorporated areas and
the curtailment of library services.
Supervisor Powers inquired as to the status of the request of
the West County Fire Protection District for an allocation of $5,aa0
from the Special District Augmentation Fund (SDAF) to study the
political consolidation of Richmond and the West County fire
district.
Mr. Batchelor advised that he had asked a member of his staff to
review the capital implications of that proposal and was told that it
would take some considerable work. He expressed a willingness to
explore the referenced political consolidation if the Board so
desired.
Supervisor Powers requested- the County Administrator to proceed
with this review.
Supervisor Schroder requested the County Administrator to also
solicit input from the Board of Fire Commissioners of the Orinda and
Moraga Fire Protection districts on the possible consolidation of
either of these two districts into one, or their possible consoli-
dation into the Contra Costa County Fire Protection District.
Mr. Batchelor expressed a reluctance to further accelerate the
consolidation of paid fire districts and particularly volunteer fire
districts into paid districts because of the potential for increased
costs without being sustained by a corresponding increase in revenue.
He noted that the consolidations that have taken place in the last
two years seemed to be appropriate and that future consolidations
should be based on growth considerations.
The County Administrator spoke on the five recommendations
presented on the attachment and on the need to pursue some of the
items identified in the presentations such as revenue enhancements,
cost efficiencies, and avoidance -of duplication. Mr. Batchelor
commented on the need to ba-lance the operational budget for fire
service and referred to Recommendation No. 5 which would require a
. one-time appropriation of $2 million from capital allocation to
operations for the 1991-1991 fiscal year. He commented on the need
to repay this fund and suggested that no capital expenditures be made
this year pending a full analysis of the .revenue projections for
funding capital needs. Mr. Batchelor spoke on the need to repay the
$2 million and therefore recommended as top priority items the
restoration of the $2 million to the capital budget upon receipt of
revenue and the allocation of unanticipated revenues to the fund
balance.
Mike Price, Contra Costa Firefighters Association, Local 1230,
commented on the issues presented and suggested the participation of
representatives of Local 1230 in the budgetary process.
Russell S. Greenlaw, a firefighter, 643 Abrigo Court, San Ramon,
spoke on the need for improvements to the fire service in the West
County area.
Supervisor Powers spoke on the need to develop a list of
identifiable issues that when they ari-se can- initiate a study on the
feasibility of consolidation, such as the retirement of senior
management personnel, the construction of a new fire station in a
particular geographical area, etc. He expressed the opinion that
this approach would make the public aware of potential savings
through efficiency and cost containment in the delivery of fire
protection service.
Supervisor Powers referred to the role of the fire service and
the County' s Environmental Health Department in responding to
incidents involving hazardous materials/substances. Noting that the
fire .service is usually the first respondent to such an incident, he
commented on the feasibility of the fire service receiving training
from Environmental Health so as to initiate mitigation measures to
contain or reduce the impact of such an incident. Supervisor Powers
suggested that consideration be given to charging HAZMAT or AB 2185
as a funding source for this training and purchase of equipment.
Supervisor Powers expressed support for the development of a
countywide sick leave and overtime policy for the fire service. He
commented on the issue of return to source and of inequities that may
be associated with the allocation of funds to various districts
particularly as it relates to capitol improvements. He recommended
that these issues be further referred to staff.
Supervisor Schroder . expressed concern with a proposal relative
to the development of a countywide benefit assessment area. He
referred to taxing inequities that might arise in the various special
districts if such an assessment area was established. Supervisor
Schroder advised that he could not support this proposal.
Mr. Batchelor commented on the different needs in the various
geographical areas of the County. He advised that it would have been
more correct to have proposed a countywide assessment review.
There was discussion on -encouraging and soliciting assistance
from the cities as well as developers in the construction of fire
stations. It was noted that the City of Walnut Creek provided
financial assistance for the construction of stations Nos. 3 and 7.
There was discussion on the impact of redevelopment siphoning off tax
.funds from County programs such as the fire service.
Supervisor McPeak proposed that as a matter of policy this
County should not have to put up any money for construction of fire
facilities out of the SDAF but that these facilities should be
financed from new growth-. She commented on the need to work in that
direction-.
In referring to the issue of return to source, Supervisor McPeak
noted that residents, within the Contra Costa County Fire Protection .
District and particularly those residing in the cities within the
geographical boundaries of that Fire District, are receiving in
services the equivalent of every tax dollar paid. She, too, called
attention to the services being provided to cities by the County and
fire districts. Supervisor McPeak referred to those cites with
redevelopment agencies who because of the redevelopment process are
able to divert tax money away from certain county programs such as
the fire service.
Supervisor McPeak recommended that the Fire Chiefs' Association
develop guidelines relative to a standard recall policy and an
overtime policy. She proposed that the Fire Chiefs also present a
recommendation relative to the percentage of operating funds that
should be targeted for managment support for fire districts.
Supervisor McPeak noted that the percentage would be different for
smaller districts versus larger districts.
Supervisor Fanden- referred to the history of fire districts and
the political climate at various times where the public might or
might not support consolidation. She noted that this must be a
consideration when a consolidation is being proposed.
Supervisor Torlakson concurred with Supervisor Powers '
recommendation for the development of criteria for consolidation
proposals. He advised that he was in favor of an analysis to
consider consolidation of fire service in central and east county
because of potential cost savings.
Supervisor Torlakson spoke on the need to aggressively work with
the cities, particularly Pittsburg and Antioch, to encourage pass
through of redevelopment money to fund fire services. He proposed
soliciting the support of business, citizens groups, city council
members, and the firefighters to develop a political climate that
controls redevelopment.
Supervisor Torlakson referred to Assembly Bill 1505 (Farr) on
the Governor's desk for signature that would- allow for the
establishment of assessment districts to fund library services and
criminal justice services, which would relieve pressure on the SDAF.
He expressed the belief that passage of this legislation could help
address the funding- shortfall in the fire service budget.
In conclusion Supervisor Torlakson proposed discussions of
certain issues presented this day with the City/County Relations
Committee. He further supported the scheduling of workshops in the
various geographical areas of the County as a means of developing a
public awareness for fire service needs.
The Chair. noted that there were no other speakers to comment on
fire service issues.
Therefore, IT IS BY THE BOARD ORDERED that Recommendations Nos.
2, through 5 as set forth on the attachment are APPROVED.
IT IS FURTHER ORDERED that:
A. The County Administrator is REQUESTED to develop a list of
identifiable issues that may initiate a feasibility study
on consolidation of certain fire districts. In developing
the consolidation criteria, the County Administrator was
also requested to analyze consolidation- of fire services
in Central and East County (Consolidated and Riverview
respectively) for cost savings benefits.
B. The County Administrator and Health- Services Director are
REQUESTED to review the feasibility of the fire service
receiving training from Environmental Health staff in the
identification and implementation of mitigation procedures
for accidents involving hazardous materials/substances with
cost recovery for training and equipment from HAZMAT Funds
or AB 2185.
C. The County Administrator and the Fire Chiefs are REQUESTED
to review procedures for allocating funds to the various
fire districts for capital improvements.
D. The County Administrator is REQUESTED to develop a policy
that would require new growth to finance the construction
of fire facilities.
E. The Fire Chiefs are REQUESTED to develop guidelines for a
standard countywide recall policy, an overtime policy, and
a sickleave policy.
I
F. The County Administrator is REQUESTED to work with the
cities, particularly Pittsburg and Antioch, to encourage
pass through of some redevelopment money to fund fire
service in their respective areas.
G. County Representatives on the City/County Relations
Committee are REQUESTED to present for discussionwith
other Committee members pertinent fire service issues
presented this day.
I hereby certify that this is a true and correct copy of
an action taken and entered on the minutes of the
Board of Supervl ors on the date shown.
CC: County Administrator ATTESTED: "e"G ` t—,' l� /
PHIL BATCHELOR,Clork of the Board
.City/County Relations Cte. of Supervisors and County Administrator
Fire Chiefs' Association
Health Services Director ev Deputv
Table of Contents
1. Summary of SDAF Allocations 90/91 - adopted budget
2. Chart showing budget, SDAF and tax growth - 90/91
3. Summary of SDAF Allocations, 91/92 - Initial Allocations
4. Chart showing budget, SDAF and tax growth - 91/92
S. Steps taken to eliminate anticipated operations deficit
6. Firefighter Salary Increases
7. Fire District Capital Issues
8. Other Unfunded Demands That Could Impact Fire District Finances
9. Possible Actions to Help Resolve Funding Problems
10. Consolidation Considerations
11. Service Improvements Implemented Since Ryland Study
12. Central County
13. Central/East County
14. West County
15. East County
16. Summary of Recommendations
SPECIAL DISTRICT AUGMENTATION FUND
SUMMARY OF PROPOSED ALLOCATIONS
FIRE DISTRICTS ONLY
FISCAL YEAR 1990-1991
1000 800
87.50 12.5%
FIRE DISTRICTS
AVAILABLE FUNDS TOTAL OPERATIONS CAPITAL
TOTALS $33,783,423 $25,602,474 $1,384,856
Allocation August 14, 1990
County Fire Districts $22,198,218
Independent Fire Districts $ 1,035,868
Affirmative Action $ 16,027
General Administration $ 112,129
Fire District Consultant Services $ 10,000
Total Allocation $23,372,242 $ 0
---------- --------
---------- --------
Balance $ 2,230,232 $1,384,856
1
Budget, Property Tax & SDAF Growth
1989-1990 to 1990-1991
15%
14%
13%
L V
11%
100
9%
0
8%
o h'
x�
6%
5%
4%
5
3%
0
2%
0
1%
Base Year
1989-1990 1990-1991
Budget requirements grew by $5,228,000
but revenues grew by only $3,783,000
2
SPECIAL DISTRICT AUGMENTATION FUND
SUMMARY OF PROPOSED ALLOCATIONS
FIRE DISTRICTS ONLY
FISCAL YEAR 1991-1992
100% 80%
87.50 12.5%
FIRE DISTRICTS
AVAILABLE FUNDS TOTAL OPERATIONS CAPITAL
TOTALS $35,786,752 $25,004,353 $3,572,050
---------- ---------- ---------
---------- ---------- ---------
Initial Allocation
County Fire Districts $25,404,995
Independent Fire Districts $ 1,117,663
Affirmative Action $ 16,828
General Administration $ 117,735
Non-Fire Districts
Total Budget Allocations $26,657,221 $ 0
Balance ($ 1,652,868) $3,572,050
Reserve for Litigation 0 464,000
Net Balance-Reserve for Contingencies ($ 1,652,868) $3,108,050
3
Budget, Property Tax & SDAF Growth
1990-1991 To 1991-1992
150
14%
13%
12%
11%
10%
9�
0
8%
0
7% ti0'
x
6%
5%
4
4%
GRO�NX
3%
2% VIVO?�R��
1%
0
Base Year
1990-1991 1991-1992
Budget requirements grew by $5,015,000
but revenues grew by only $2,457,000
4
STEPS TAKEN TO ELIMINATE ANTICIPATED
OPERATIONS DEFICIT
Current Deficit $1,652,868
Estimated Salary Increase 1,592,000
Estimated Year End
Operations Deficit $3,244,868
Steps to Balance Budget:
Budget Reduction Plans-
County Districts -$1,270,249
Independent Districts -$ 55,883
Adjusted Deficit $1,918,736
Reallocation of funds from the
$3,572,050 capital fund $2,000,000
Net Estimated Year End Balance $ 81,264
5
Firefighter Salary Increases
1984 to 1991
Effective Date Percentage Increase
1-1-1991 9.9
1-1-1990 8.3
1-1-1989 4.4
4-1-1988 3.9
7-1-1987 2.0
1-1-1987 5.0
8-1-1986 1.5
6-1-1986 7.7
1-1-1985 6.8
Average Annual Increase 7.10
Total Percentage Increase 49.5%
Compounded Actual Increase 6i.7%
6
Fire District Capital .Issues
Available Funds
Beginning Balance - SDAF
Capital Acquisition Fund $ 84,000
1991-1992 Allocation 1,108,050
Total Available Funding $ 1,192,050
Current Short-Term Unfunded Capital Demands:
Routine Annual Capital Requests $6,366,251
Communications Equipment $ 616,777
Firefighting/Emergency
Medical Equipment 140,477
Training Aids and Office
Equipment 556,578
Buildings, Grounds and
Vehicle Maintenance 1,259,140
Vehicle Replacements and
Additions 3,793,279
Riverview Administration
Building Replacement 1,500,000
Rodeo-Hercules Station
Replacement - Rodeo 1,000,000
West County Station Replacement - San Pablo 1,000,000
Contra Costa County:
Station 3 - Walnut Creek 387 ,000
Station 21 - Pleasant Hill/Martinez 681,000
Station 22 - Crystal Ranch/State College
Site - Concord 1,032,000
Total Current Capital Needs $11,966,251
Estimated Capital Shortfall $10,774,201
7
Other Unfunded Demands That Could Impact
Fire District Finances
♦ San Ramon Valley Fire Protection District/American River Issue
♦ Contra Costa Mosquito Abatement District/American River Issue
♦ Pacific Bell Property Tax Refund
♦ Other Utility Property Tax Refunds
♦ New Station Staffing:
Contra Costa County - Station 21
- Station 22
Riverview - Station 87
8
Possible Actions To Help Resolve Funding Problems
♦ Implement Recommendations of County Fire Chiefs' Association
Operations Review Committee Regarding Cost Saving Measures and
Revenues
♦ Additional Operations Budget Reductions
♦ Adopt Countywide Benefit Assessments
Adopt Countywide Development Fees
Limit Fire Station Construction Costs By Using Modular (Relocatable)
Buildings
♦ Staff New Unfunded Stations By Rotating Existing Firefighters Through
The Stations Of The District (Revolving Station Closure Procedure)
♦ Link Future (After 1992) Salary Adjustment Formulas To Revenue
Fluctuations
9
Consolidation Considerations
♦ In 1981 the County commissioned a Fire Service Study known as the
Ryland Report
♦ The study looked at consolidation in addition to other fire service
issues
♦ It is suggested that the Ryland Report be used as a starting point to
define potential current consolidation issues
♦ The following outlines deals with consolidation issues on an area by
area basis
10
Economies, Efficiencies and Service Improvements
Implemented Since Ryland Study
Areas of County
West Central East
1. Administration/Budget
A. Capital Improvement Committee Yes Yes Yes
B. Operations Review Committee Yes Yes Yes
C. Development fees Partial Partial Yes
D. Benefit assessment fees Partial No Partial
2. Basic Service Level:
A. Increased number of three-person
engine companies Yes Yes N/A
3. Communications:
A. Multi-jurisdictional dispatch Yes Yes Yes
B. Shared operating costs Yes Yes Yes
C. Automatic mutual aid system Yes Yes Yes
1. Intra County
2. Inter County (six bay
area counties)
D. Countywide 911 system Yes Yes Yes
E. Standardized fire station/
vehicle numbering system Yes Yes Yes
F. Upgraded CAD systems Partial Yes Yes
G. Expanded radio frequencies Yes Yes Yes
H. Standardized fire response Yes Yes Yes
4. Emergency Medical Services
A. Pre-arrival information No Yes Yes
B. First responder defibrillators
(1/1/92) Yes Yes Yes
C. Medical disaster caches Yes Yes Yes
D. Improved first responder training Yes Yes Yes
E. Countywide Multi-Casualty Plan Yes Yes Yes
F. Citizens CPR training Yes Yes Yes
S. Facilities:
A. New stations Yes(1) Yes(1) Yes(3)
B. Relocated stations Yes(1) No No
C. Expanded communications centers Yes Yes N/A
D. Land acquisition (support No Yes No
facilities)
E. Station sites Yes Yes Yes
F. Replacement/removal of
underground fuel tanks Yes Yes Yes
11
Areas of County
West Central East
6. Fire Prevention and Inspection:
A. Services to volunteer districts' No N/A Yes
B. Application of Uniform Fire Code Yes Yes Yes
C. Updated County General Plan Yes Yes Yes
D. Fire safe roofing Partial Yes Partial
E. Sprinklers required for
buildings over 10,000 sq.ft. Yes Yes Yes
F_ Permit and inspection fees Partial Partial Yes
G. Residential smoke detectors
required Yes Yes Yes
H. Expanded public/education
programs Yes Yes Yes
7 . Safety:
A. OSHA compliance:
1. Self-Contained Breathing
Apparatus Yes Yes Yes
2. Personal Alarm Devices Yes Yes Yes
3. Safety Clothing Yes Yes Yes
B. Station exhaust removal systems Partial Partial Partial
C. Asbestos mitigation Partial_ Partial No
D. NFPA Standards review Yes Yes Partial
E. Traffic signal contaol devices
(Opti-Com) Partial Partial Partial
F. Hazardous materials training
and equipment Yes Yes Yes
8. Self Insurance:
A. Workers' Compensation Yes Yes Yes
B. Liability Yes Yes Yes
C. Casualty Yes Yes Yes
Central County
Agencies•
r
♦ Contra Costa County (County District)
♦ Moraga (County District)
♦ Orinda (County District)
♦ San Ramon Valley (Independent District)
Ryland Recommendations:
♦ Do not consolidate San Ramon Valley and Contra Costa County
♦ Do not consolidate Moraga and Orinda
♦ Consolidate Moraga and Orinda with Contra Costa County
Status:
♦ In 1983, the Board of Supervisors considered and rejected the
consolidation of Moraga and Orinda with Contra Costa County
because of staff cost increases
County Administrator Recommendations:
♦ Direct staff to continue to explore the feasibiity of
consolidating Moraga and Orinda if the Board of Supervisors
believes that there are additional program efficiencies that can
be derived over and above those already implemented.
12
Central/East County
Agencies:
♦ Contra Costa County (County District)
♦ Riverview (County District)
Ryland Recommendation:
♦ Because of geographic separation and political considerations, do
not consolidate Contra Costa and Riverview
Status-
♦ No specific proposal to consolidate has ever been made
County Administrator Recommendations:
4 Because the Ryland Report identified only minimal savings, it is
recommended that the two districts not be merged
13
West County
Agencies•
♦ El Cerrito (City)
♦ Kensington (Independent District)
♦ Pinole (City)
♦ Pinole (County District)
♦ Richmond (City)
♦ Rodeo-Hercules (Independent District)
♦ West County (County District)
Ryland Recommendations:
♦ Combine into one entity as a joint powers authority
Status:
♦ Functional consolidation has occurred in the areas of management,
communications, training and clerical services
♦ Actual consolidation has not occurred because of political issues
and lack of incentives
County Administrator Recommendations:
♦ Continue to support productivity enhancements through elimination
of duplication
♦ Encourage cooperation among all fire agencies in west county
14
East County
Agencies-
♦ Bethel Island (County District)
♦ Byron (County District)
♦ East Diablo (County District, formerly Brentwood and Eastern)
0 Oakley
Ryland Recommendations:
♦ Gradual conversion of volunteer districts into fully-paid
districts
♦ Annex developing areas to paid districts
Status:
♦ Both alternatives have been and continue to be implemented
♦ Brentwood and Eastern were merged several years ago
♦ The former Tassajara (County District) was annexed to the San
Ramon Valley District
♦ The Board has approved the annexation of Byron by East Diablo
0 Some developing areas have been annexed to Riverview
County Administrator Recommendations:
♦ Allow east County districts to continue to evolve as they have
over the last ten years and only consider consolidation where it
appears to be economically and politically feasible
15
SUMMARY OF RECOMMENDATIONS
1. Accept public testimony as part of this workshop presentation on fire
district budgets, finances and consolidation.
2. Direct staff to pursue any additional efficiency measures that may
result from today's workshop.
3. Direct the County Administrator to work with the f ire chiefs to
carefully monitor and control expenditures for all fire district
budgets.
4. Continue to freeze the filling of all non-critical positions until
each district's budget reduction plan has been implemented.
S. Authorize the one-time appropriation of $2 million from the capital
allocation to operations for the 1991-1992 fiscal year and direct the
County Administrator's Office to work with the fire chiefs to return
to the Board by March 31, 1992, with a proposal to fund future,
operations and capital needs in order to operate the fire district
functions at an appropriate level in future years.
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