HomeMy WebLinkAboutMINUTES - 12021997 - C118 r n
TO: BOARD OF SUPERVISORS
FROM: Anne Marie Gold, County Librarian
DATE: November 10, 1997
SUBJECT: Approval of Joint Exercise of Powers Agreement with City of
Concord Regarding Library Services
RECOMMENDATION:
APPROVE Joint Exercise of Powers Agreement with the City of Concord and
AUTHORIZE Chair to EXECUTE said agreement, which provides a program for
cooperation between the County and the City regarding certain aspects of the library
facility located in the City of Concord.
FINANCIAL IMPACT:
This agreement provides for payment to the City of Concord of up to $1,500,000 in capital
funds for the expansion of the Concord Library facility and for the expenditure of an
additional $170,000 annually in operating funds at the Concord Library facility upon
acceptance of the facility expansion project as complete by the City. Payments to City will
come from funds other than those currently designated for non-capital library operations,
in accordance with the Board of Supervisors action on April 15, 1997.
BACKGROUND:
On March 7, 1996 the Board of Supervisors approved and authorized the County
Administrator and County Librarian to participate in a joint city/county funded study of
library services.
In November 1996, David M. Griffith & Associates issued its Final Report for the Contra
Costa County Library Study to the Contra Costa County Public Managers' Association.
On April 15, 1997 the Board of Supervisors, as an outcome of the David M. Griffith &
Associates library study, adopted recommendations regarding library services which
committed County funds for the expansion and operation of the Concord Library.
This Joint Exercise of Powers Agreement provides for the transfer of funds to the City of
Concord for expansion of the library facility in Concord and for expenditure an additional
$170,000 in operating funds, in accordance with these prior Board actions.
The Concord City Council unanimously approved this Joint Exercise of Powers
agreement at the Council meeting of October 28, 1997.
CONTINUED ON ATTACHMENT YES SIGNATURE:
_ RECOMMENDATION OF COUNTY ADMINISTRATOR _ RECOMMENDATION OF BOARD COMMITTEE_ APRROYE_ OTHER
SIGNATURE(S):
ACTION OF BOARD ON ecem er , 1997 APPROVED AS RECOMMENDED X OTHER
VOTE OF SUPERVISORS:
UNANIMOUS(ABSENT ) I HEREBY CERTIFY THAT THIS IS A TRUE AND
AYES: II, iy V NOES: j jjj CORRECT COPY OF AN ACTION TAKEN AND ENTERED
> > ON THE MINUTES OF THE BOARD OF SUPERVISORS ON
ABSENT: ABSTAIN: THE DATE SHOWN. /
Contact: Anne-Marie Gold,County Librarian ATTESTED December 2, 1997
646-6423
cc: Library Administration PHIL BATCHELOR, CLERK OF THE BOARD OF SUPERVISORS
County Administrator's Office AND COUNTY ADMINISTRATOR
Auditor-Controller's Office
City of Concord,City Manager's Office BY DEPUTY
oAbos\conjepa.doc 11/10/87
AGENDA rrEM NO.
i r '
II
Concord REPORT TO MAYOR AND COUNCIL
TO THE HONORABLE MAYOR AND COUNCIL:
DATE: October 28, 1997
SUBJECT: LIBRARY AGREEMENT
Report in Brief
The Contra Costa County Library Reorganization Operating Plan was approved by the City Council
on July 29, 1997 (Exhibit B). Included in this plan were provisions for City and County participation in the
funding of improvements to the Concord Library. The Council's approval of the Plan was conditioned on
the City and County negotiating an irrevocable agreement regarding participation in this funding. A draft
agreement has been compiled by City and County staff. It is recommended the City Council authorize the
City Manager to enter into this agreement with Contra Costa County(Exhibit A).
Background
The attached staff report dated July 29, 1997, gives background information on the efforts by the City
Council to bring improved library services to the City. The Contra Costa County Library Reorganization
Operating Plan which was approved by the City and the County Board of Supervisors includes the following
provisions regarding the funding of improvements to the Concord Library:
BRANCHES
5. The County will fund up to $1.5 million to expand and renovate the existing Concord library.
The City of Concord will fund at least $1.5 million for the same project. The $1.5 million from
the County shall come from funds other than those currently designated for non-capital library
operations and other than those from future ballot measures.
If the City of Concord withdraws from the County Library within 5 years after the time that the
facility renovation and expansion is completed, it shall return to the County the full $1.5 million
in facility funding. If the City of Concord withdraws from the County Library anytime within the
next five years, it shall return to the County an annual diminishing scale percentage.
6. The County will fund an additional $170,000 annually, subject to annual increase based on
operating costs, to expand hours and services at the Concord Library, at the time that the facility
LIBRARY AGREEMENT,
October 28, 1997
Page 2
4i
renovation and expansion is completed. Such services and hours shall be determined by the City
of Concord. These additional funds shall come from funds other than those currently designated
for non-capital library operations and other than those from future ballot measures.
Because these funding provisions could be altered by the vote of any future Board of Supervisors and
necessary details regarding the provision of funding must be established. the City Council required an
irrevocable agreement be established between the City and County.
Discussion
City and County staff jointly produced the attached agreement (Exhibit A). Main features of the
agreement include:
• Definition of City and County responsibilities during the design and construction phases of the
Concord library expansion and renovation project (Section 3).
• Provision for $170,000 annual operating funding; supplied by County to be increased by a CPI
adjustment each year (Section 4 (b)).
• Return of funds to County if City withdraws from the County Library system according to a sliding
scale percentage as provided in Contra Costa County Library Reorganization Operating Plan and
embodied in this agreement (Section 4 (d)).
• Updating the current facilities agreement with the County on completion of the expansion and
renovation project. This agreement would transfer approximately $51,000 annually to the City in
addition to the S 170,000 additional annual operating funds. In exchange the City would be responsible
for maintenance the County currently funds in the amount of$51,000 per year. These responsibilities
include janitorial service, elevator maintenance, utilities, garbage service, alarm maintenance and
servicing of all mechanical systems (Section 6 (c)).
This agreement follows the provisions of the Reorganization Operating Plan approved by the Council
in July. 1997. The City is required by the Reorganization Operating Plan and this agreement to provide
matching funding for the renovation and expansion project. The County's contribution is capped at $1.5
million. The City may match this amount or provide funds above $1.5 million if a larger project is desired
by the City. The County will provide $170,000 in annual operating funding subject to a CPI increase. The
City is not required to contribute additional operating funding.
The City Council has tentatively budgeted $1.5 million in matching funding for the Concord Library
expansion and renovation project . This funding is contained in the City's 10-Year Financial Plan approved
by the Council as part of the FY 97/98 City Budget. On June 10, 1997, the Council approved incorporating
an arts and cultural center within the library expansion project. Art in Public Places Fund monies totaling
$348,257 were designated for this project. It is recommended the City Council authorize the City Manager
to enter into this agreement with Contra Costa County.
LIBRARY AGREEMENT
October 28, 1997
Page 3
Because the County Board of Supervisors is scheduling only one meeting in November and action by
the City Council on October 28, 1997, would not supply adequate lead time to place this agreement on the
Board's November meeting agenda, the Board would consider the agreement at the first Board meeting in
December.
Fiscal Impact -
Implementation of the agreement will provide the City with $1.5 million in capital improvement
funding to expand and renovate the Concord Library. In addition, the County will provide $170,000 each
year for the City to spend as it sees fit on library operations. The City is required to provide $1.5 million
in matching funds. The City has budgeted $1.5 million in matching funds in the 10-Year Financial Plan.
On June 10, 1997, the Council approved incorporating an arts and cultural center within the library
expansion project. Art in Public Places Fund monies totaling $348,257 were designated for this project
Public Contact
Posting of the Council Agenda. A copy of this staff report has been sent to Anne Marie Gold, County
Librarian, 1750 Oak Park Boulevard, Pleasant Hill, CA 94523-4497.
Alternative Courses of Action
1. Authorize the City Manager to enter into an agreement with Contra Costa County implementing
funding for expanding and renovating the Concord Library as set out in the Contra Costa County Library
Reorganization Operating Plan.
2. Do not authorize the City Manager to enter into an agreement with Contra Costa County
implementing funding for expanding and renovating the Concord Library as set out in the Contra Costa
County Library Reorganization Operating Plan.
3. Modify provisions of the agreement and authorize the City Manager to enter into a modified
agreement with Contra Costa County implementing funding for expanding and renovating the Concord
Library as set out in the Contra Costa County Library Reorganization Operating Plan.
Council Committee Recommendation
This item was not reviewed by a Council Committee.
Recommendation for Action
Alternative 1., authorize the City Manager to enter into an agreement with Contra Costa County
implementing funding provisions for expanding and renovating the Concord Library as set out in the Contra
Costa County Library Reorganization Operating Plan.
LIBRARY AGREEMENT:
October 28, 1997
Page 4
Edward R. James Peter Dragovich
City Manager Senior Administrative Analyst
Enclosures: Exhibit A Draft Agreement
Exhibit B Council Staff Report Dated July 29, 1997
LIB REP 1 O.PD
DRAFT
EXHIBIT A
JOINT EXERCISE OF POWERS AGREEMENT
BETWEEN G
THE COUNTY OF CONTRA COSTA U 1997
AND Ci i`v ih:c::
THE CITY OF CONCORD
1. Parties: Effective , 1997, the COUNTY OF CONTRA COSTA, a political
subdivision of the State of California, hereinafter referred to as "County," and the City of Concord, a
municipal corporation of the State of California, hereinafter referred to as "City," pursuant to Government
Code section 6500 and following, agree as follows.
2. Purpose and Scooe: The purpose of this Joint Exercise of Powers Agreement, hereinafter referred to as
"this Agreement," is to provide a program for cooperation between County and City regarding certain
aspects of the library facility located in City, hereinafter referred to as "the Library Facility,"that is part of
County's library system. Specifically, City is to renovate and expand the Library Facility,hereinafter
referred to as "the Project," and County shall contribute up to $1,500,000 to the Project and provide
$170,000 a year as adjusted in additional operating funds for the Library Facility after the Project is
accepted as complete by the City for so long as the Library Facility remains a part of County's library
system, as specified in section 4 of this Agreement.
3. Method:
(a) County shall perform the following activities:
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1. Review and approve the plans and specifications for the Project as well as the bid documents
prior to advertisement of all contracts including the construction contract(s); a
p � g
2. Consult with City, as necessary, to enable the Project to be promptly and properly completed;
3. Perform a joint final inspection of the Project with City;-
4. Pay City only the cost up to $1,500,000, as specified in section 4 of this Agreement, of the actual
design, engineering, surveys, materials testing, and construction of as, well as for fixtures, furniture,
and equipment for, the Project; and
5. Fund$170,000 a year as adjusted in additional operating funds for the Library Facility after the
Project is accepted as complete by City for so long as the Library Facility remains a part of
County's library system, as specified in section 4 of this Agreement, with these additional operating
funds to be used to expand hours and/or services at the Library Facility, as determined by City.
(b) City shall perform the following activities:
1. Prepare, or have prepared, the plans and specifications and the bid documents for the
Project;
2. Perform, either by itself or through a consultant, all design, engineering, surveys,
materials testing, contract administration, and inspection of the Project, with the exception of
the final inspection, which is to be performed jointly with County;
3. Obtain environmental clearance for the Project pursuant to the California Environmental Quality
Act and secure all permits to complete construction of the Project, as necessary;
4. Advertise the Project for public bid and award all contracts, including the construction
2
t
contracts(s);
S. Consult with County on any necessary changed or extra work pribr to the issuance of any
contract change orders for the Project;
6. Consult with County,through the County Librarian, at all stages of the Project from initial
design through completion of construction so that the County Librarian can provide input to City
regarding the Project;
7. Accept the Project as complete but not until County has determined that the Project has
been completed to its satisfaction;
8. Maintain Project records and document Project expenses;
9. Prepare and submit to County timely reports of Project receipts and disbursements;
10. Bill County only for the cost of the actual design, engineering, surveys, materials
testing, and construction of, as well as for fixtures, furniture, and equipment for, the Project;
11. Directly pay all costs for the Project, as specified in section 4 of this
Agreement, of the actual design, engineering, surveys,materials testing, and construction of, as well
as for fixtures, furniture, and equipment for, the Project but with County reimbursement of only
one-half of all costs up to $1,5000,00, as specified in section 4 of this Agreement; and
12. Provide County with two copies of as-built plans before the Project is accepted as complete by
City.
4. Financial Responsibilities:
(a) County shall pay City only for the cost of the actual design, engineering, surveys, materials
3
testing, and construction of as, well as for fixtures, furniture, and equipment.for, the Project, which cost
shall not exceed$1,500,000 and which cost shall be matched by City dollar for dollar such that, if the total
cost of the Project is, for example, $2,000,000, County shall pay$1,000,000 and City shall pay$1,000,000
or, if the total cost of the Project is, for example, $4,000,000, County shall pay$1,500,000 and City shall
pay$2,500,000. The up to $1,500,000 payment from County shall be disbursed to City as follows: 50
percent within 10 days of the execution of the construction contract or, if there is more than one
construction contract, within 10 days of the execution of the final construction contract and 50 percent
within 30 days of County's receipt of City's final report.of Project receipts and disbursements. If the cost
of the Project is less than$3,000,000, City shall refund to County, within 60 days of the date the Project is
accepted as complete by City an amount necessary so that County's total payment to City is one-half of the
cost of the Project; if such refund is not made by City to County, County, at its discretion, may offset the
refund due against the $170,000 a year as adjusted in additional operating funds until such refund is
complete.
(b) County will fund$170,000 a year as adjusted in additional operating funds for the Library
Facility after the Project is accepted as complete by City for so long as the Library Facility remains a part of
County's library system, with these additional operating funds to be used to expand hours and/or service at
the Library Facility, as determined by City. The first payment of these additional operating funds shall be
provided by County within 60 days after the Project is accepted as complete by City, with the amount
County will pay in the first fiscal year prorated based upon the number of days between the date the Project
was accepted as complete by City and June 30 of that fiscal year.. The$170,000 shall then be adjusted at
the end of each fiscal year for the following fiscal year for as long as the Library Facility remains a part of
County's library system, with each adjustment calculated as provided for in Revenue and Taxation Code
4
section 51 (a) (1) (B).
(c)Both the up to $1,500,000 payment by County to City and the $170,000 a year as adjusted in
additional operating funds shall come from funds other than those designated as of the effective date of this
Agreement for non-capital library operations and other than those that might be provided through future
ballot measures.
(d) If the Library Facility is withdrawn by City from County's library system utilization within five
years of the date of acceptance of the Library Facility by City, City shall return to County all the up to
$1,500,000 paid to City, with interest computed to the date of refund at the average rate of return on funds
invested by the Treasurer-Tax Collector. If the Library Facility is withdrawn by City from County's library
system after five years but less than eleven years after the date of the acceptance of the Library Facility by
City, City shall return to County a portion of the up to $1,500,000 paid to City,with interest computed to
the date of refund at the average rate of return on funds invested by the Treasurer-Tax Collector, as follows:
85 percent if the date of withdrawal is in the sixth year, 65 percent if the date of withdrawal is in the
seventh year, 45 percent if the date of withdrawal is in the eight year, 25 percent if the date of withdrawal is
in the ninth year, and 10 percent if the date of withdrawal.is in the tenth year.
5. Insurance and Indemnification:
(a) All contract documents for the Project shall include provisions requiring all contractors,
including the construction contractor(s), to provide all necessary payment and performance bonds as well as
insurance coverage, with indemnification clauses naming County and its officers and employees to the
5
same extent as City and its officers and employees and shall require the contractor(s) to provide to City a
guarantee against defects in materials and workmanship for a period of at least one year from the date of
acceptance of the Project by City.
(b) Neither County, nor any officer or employee thereof, shall be responsible for any liability
occurring by reason of anything done or omitted to be done by City in connection with any responsibility
delegated to City under this Agreement to the extent not covered by the above-described bonds and
insurance. City shall defend, indemnify, save, and hold harmless County and its officers and employees
for any and all claims, demands, suits, costs, expenses, and liability for any damages, injury, sickness, or
death, including for attorneys' fees and costs, occurring by reason of anything done or omitted to be done
by City in connection with any responsibility delegated to City under this Agreement,except as provided
otherwise in section 5 (c) of this Agreement.
(c) County acknowledges that entry into the construction area carries with it a certain risk and agrees
to release and hold harmless City and its officers and employees from any liability for death of,or injury to,
County's representative(s) while present in the construction area, except for liability resulting from the sole
negligence or sole willful misconduct of City or its officers, employees, or agents.
(d) Nothing in this Agreement is intended to affect the legal liability of either party to third parties
by imposing any standard of care different from that normally imposed by law.
6. Acceptance:
(a) Upon completion of the Project, County and City.shall conduct a joint final inspection. After
County and City have determined that the Project has been completed to both parties' satisfaction, City
6
shall accept the Project.
(b) Upon acceptance of the Project, City shall own the Project and shall defend, indemnify, save,
and hold harmless County and its officers and employees against any and all claims, demands, suits, costs,
expenses, and liability for any damages, injury, sickness, or death, including for attorneys' fees and costs,
occurring after acceptance and relating to the design, engineering, surveys,materials testing, and
construction of the Project as well as, if the Library Facility is withdrawn by City from County's library
system, relating to the use and operation of the Project, except for liability resulting from the sole
negligence or sole willful misconduct of County.
(c) It is understood and agreed by County and City that a separate facilities agreement will be
entered into by County and City prior to the award of the construction contract(s) of the same or similar
kind as those currently existing with other cities (e.g., San Ramon,Danville, etc.). It is further understood
and agreed by County and City that County's annual share of operating cost to be set forth in such facilities
agreement shall be limited to the amount budgeted by County for the Library Facility in the last fiscal year
that the Library Facility was open and in operation prior to the date the Project was accepted as complete by
City and that the $170,000 a year as adjusted in additional operating expenses shall not be included in any
way in such facilities agreement.
7. Restrictions: Pursuant to Government Code section 6509, the powers of both parties under this
Agreement shall be subject to the restrictions of such powers applicable to County.
8. Accountability: As required by Government Code section 6505,both parties to this Agreement shall
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provide strict accountability of all funds received and disbursed for the Project.
9. Modification: This Agreement shall be subject to modification only by the written consent of both
parties.
10. Termination: Unless terminated earlier by the written consent of both parties, this Agreement shall
terminate upon County's final payment to City or City's reimbursement to County, whichever applies .
However, the provisions of sections 4(b), 4(d), 5(b), and 6(b), of this Agreement shall survive any
termination of this Agreement.
11. Entire Ap-reement: This Agreement contains the entire understanding of both parties relating to the
subject matter of this Agreement. Any representation or promise of either party relating to the Project shall
not be enforceable unless it is contained in this Agreement or in a subsequent written modification of this
Agreement executed by both parties.
COUNTY OF CONTRA COSTA CITY OF CONCORD
By: By:
Chair,-Board of Supervisors Mayor
ATTEST: ATTEST:
Phil Batchelor, Clerk of the City Clerk
Board of Supervisors and
County Administrator
8
By: By:
Deputy
RECOMMENDED FOR APPROVAL: RECOMMENDED FOR APPROVAL:
Anne Marie Gold City Manager
County Librarian
By: By:
FORM APPROVED: FORM APPROVED:
Victor J. Westman
County Counsel City Attorney
By: By:
Deputy
H:\DPFISIPSAU,TR56.W PD
9
AGENDA TEEM NO. ,
EXHIBIT B
Concord REPORT TO MAYOR AND COUNCIL
TO THE HONORABLE MAYOR AND COUNCIL:
DATE: July 29, 1997
SUBJECT: CONTRA COSTA COUNTY LIBRARY REORGANIZATION OPERATING PLAN
Report in Brief
The City Council approved the Public Manager's Association (PMA) model for the delivery. of library
services on December 10, 1996 (Exhibit A). Cities in the county(excluding the City of Richmond) and the
County Board of Supervisors reviewed the PMA model.in late 1996 and early 1997. The Board of
Supervisors approved the outline of a reorganization of the County library system on April 15, 1997. The
foimal "Contra Costa County Library Reorganization Operating Planwas presented to the Board of
Supervisors by County Library staff on June 24, 1997 (Exhibit B).
The Board of Supervisors has not sent the Library Reorganization Operating Plan back to cities for
review and approval. The Board is implementing the plan and has called on cities to appoint representatives
to attend an initial meeting of the regional boards (Exhibits C and D). It is recommended the Council
.approve the Contra Costa County Library Reorganization Operating Plan subject to the City and County
negotiating an irrevocable agreement setting out the conditions of the City's participation in the Plan. It is
also recommended that the Council make the requested appointment to the Central County Regional Board.
A joint meeting of the five regional boards is scheduled for July 31, 1997.
Background
The City Council adopted two recommendations for library service delivery at their Council meeting
on October 24, 1995. The first authorized a study to determine the feasibility of a "go-it-alone" library
alternative for the City of Concord. The second recommended to the Mayor's Conference that an
independent study be performed to address the feasibility of various models of library service delivery and
governance within Contra Costa County. The Council took these actions based, in part, on concerns there
is a large disparity between what Concord pays for library services and the amount the County spends on
library services in Concord. Concord is significantly underserved compared to other cities in the county.
The Contra Costa County Library Master Plan adopted by the Library Commission in 1993 verified
these concerns. It found Concord at or near the bottom of all library performance indicators studied. The
Master Plan examined five standards:
LIBR Y REORGANIZATION PLAN
July 29, 1997
Page 2
1. Square Footage Per Capita Concord is 63% below Minimum Standard. Only Oakley was
rated lower(communities over 10,000 population with a library
facility).
2. Volumes Per Capita Concord is 71% below Minimum Standard. Only Oakley and
Pittsburg rated lower in this category.
3. Materials Expenditure Per Capita Concord is 66% below Minimum Standard. Only Oakley and
Pittsburg were rated lower.
4. Open Hours Per Week Concord is 75% below Minimum Standard. Only Oakley rated
lower.
5. FTE Staff Per Capita At the clerk level Concord is 67% below Minimum and at the
Professional level Concord is 65% below Minimum. Again,
only Oakley rated lower.
Minimum standard was defined as a minimum acceptable level of service. The plan reviewed Bay area
comparative averages for each standard examined.
The disparity in service levels between Concord and other cities emphasized that not only are resources
stretched within the County system but that allocation between cities does not adequately address needs.
Most larger cities in the county rated much higher than Concord in the Library Master Plan. Concord was
consistently rated at the bottom. The Library Master Plan acknowledged problems in the allocation of
resources within the library system. It stated the implementation time line for raising cities up to minimum
standards is, "five years and would be accomplished by both the reallocation of existing revenues and
growth in existing revenues". The Contra Costa County Board of Supervisors declined to adopt or take
action on the Master Plan.
The "go-it-alone" library study by Arroyo & Associates confirmed the Library Master Plan findings.
Arroyo & Associates found that not only is Concord is a donor city, contributing approximately$320,000
more per year in funding to the County Library System than is received in services, but that service levels
in Concord are very low compared to the rest of the county. The Arroyo&Associates"go-it-alone" library
study found that under several scenarios the City could withdraw from the County library system and with
no additional expenditure offer library services equal to or better than service received from the County.
This projection relied on the ability of the City to retain the existing property tax revenues dedicated to
library services on withdrawing from the County system. The Arroyo & Associates findings are
summarized in a City staff report dated January 28, 1997 (Exhibit E).
The County Library System sustained severe financial setbacks in 1992 and 1993. In November, 1992,
the ballot contained a$20 parcel tax for 4 years which would have provided funds to support services such
as law enforcement, "safety net" services for families and children, and library services. The library would
have received 10.4% of the revenue generated, or$700,000in fiscal year 1992/93. This measure received
64.4% of the vote, short of the 2/3rds required. In September, 1993, the County library lost one-third of its
budget when the state eliminated the Special District Augmentation Fund. Library hours were cut, the
material's budget was significantly reduced and many staff were laid off. In 1994, Measure B would have
levied a$15 parcel tax for the library system. It failed receiving 61% of the vote. Measure B would have
raised approximately $5 million annually for the library system. Based on this experience, it is apparent
LIBR Y REORGANIZATION-PLAN.
July 29,' 1997
Page 3
passage of any future ballot measure for library funding will require strong and united support from political
leaders and various interests groups in the community.
The countywide study authorized by the Council and conducted by David M. Griffith was a joint effort
of all cities (excluding Richmond) and the County. The Public Manager's Association (PMA) constructed
the Scope of Work for the study and managed DMG's work. It formed-the basis for the Public Manager's
proposed model for library reorganization and funding which was presented to the Mayor's Conference by
the PMA on November 7, 1996 (attachment to Exhibit A).
The cities and the County Board of Supervisors reviewed the PMA model following its release in
November, 1996. A number of cities adopted the plan, a few rejected it, and others supported the PMA
model with conditions. Following a study session on February 4, 1997 and meetings of March 11, 1997,
and April 15, 1997, the Board of Supervisors adopted the, "Contra Costa County Library Reorganization
Operating Plan". This plan differed from the PMA model in several important respects. The Board of
Supervisors has not sent this Library Reorganization Operating Plan back to the cities for review or approval.
County Library staff subsequently sent a letter to the Mayors of 17 cities announcing a joint first meeting
of the regional boards and requesting appointment of a City Council member to sit on the board (Exhibit Q.
This meeting was rescheduled to July 31, 1997 (Exhibit D).
Discussion
The City Council adopted the PMA model at their meeting of December 10, 1996. The staff report to
the City Council highlighted the following advantages of the PMA model:
• "Provides for the potential to increase library services in the future and provide residents with more
local control over how libraries are operated;
• Provides local decision-making authority over the hours and levels of service;
• Guarantees continuation of the 29 hours per week minimum service in all branch libraries regardless
of property tax generated in any particular city;
• Recognizes the importance of"return to source" by guaranteeing all future property tax growth will
remain in the region generated;
• Provides for the enhanced possibility for passage of a revenue measure for additional library services
and/or capital improvements;
• Guarantees all future voter-approved library revenue increases will remain in the region generated;
• Provides for continuation of the existing library management structure;
• Guarantees all current library staff will remain employed."
The cities and the County Board of Supervisors reviewed the PMA model in late 1996 and early 1997.
As noted above,a number of cities adopted the plan, a few rejected it, and others supported the PMA model
with conditions. The County Library Commission reviewed and adopted the.PMA model at their November
6, 1997 meeting. The Library Commission noted concerns with the model but reaffirmed its support at their
meeting of January 13, 1997. The issues that were of the: most concern included the alleged "break-up" of
the Central Library, role of the regional governing boards and improvements to the Concord library. The
LIBR Y REORGANIZATION PLAN
July 29, 1997
Page 4
countywide discussion of the PMA model created consensus on many points. This debate heightened the
awareness of many interests in the community of the need for improved library services.
The review of the PMA model by the cities culminated in review by the County Board of Supervisors.
The Board conducted a study session on February 4, 1997. This was followed by Board review on March
11, 1997, and April 15, 1997. The Board approved the outline of a plan on April 15, 1997. On June 24,
1997, County Library Staff brought back a document titled, "Contra Costa County Library Reorganization
Operating Plan" which incorporated changes the Board directed at its April 15, 1997 meeting (Exhibit B).
Cities that supported the PMA model were successful in persuading Board members to modify their
positions to conform to the principles of the PMA model. The City Managers were actively involved in this
phase of the negotiating, informing respective City Councils of the progress of negotiations. Important
concessions obtained during the Board of Supervisors review included:
• Strengthening Performance Contract provisions I
• Requiring the$1.5 million capital and$170,000 annual operating funding for Concord to be derived
from sources that do not presently fund library operations and not from future ballot measures
• Strengthening the duties of Regional Boards
• Obtaining the$170,000 in annual non-library operating funding for Concord in-lieu of transferring the
business collection from the Central Library. These funds can be used in any way Concord sees fit
including establishing a state-of-the-art business collection
• Elimination of the proposal for part ownership of the Concord branch by the County
• Adding criteria for documenting the 10% cost-savings feature of the Performance Contract
• Commitment by Pleasant Hill and the County to fund$350,000 of the$600,000 for operations at the
Central Library. The balance of$250,000 to be shared equally by the five regions
The Library Reorganization Operating Plan adopted by the Board of Supervisors differs from the PMA
model in the following respects:
• Regional Boards.
The PMA model stated, "the County shall provide services to subregions within the County pursuant
to decisions made by Subregional Library Councils". The Reorganization Operating Plan states, "The
charge to the regional boards is to determine service needs and hours of operation within its region for
those services and hours that are funded by new revenues and growth on existing revenues over and
above those revenues needed to fund base level services" and, "The Board of Supervisors remains the
overall governing board for the County Library. It is the clearly stated intent of the Board of
Supervisors to enact the decisions regarding new revenues made by the regional boards". The
Operating Plan restricts regional board authority to new revenues and places the boards in an influential
but advisory role to the Board of Supervisors.
The PMA model included_a County representative on the regional board. The Reorganization
Operating Plan includes two County representatives on each board, one from the Board of Supervisors
and a representative from the unincorporated area within each region. The PMA proposal did not
address whether a unanimous vote of a regional board is required to withdraw from a region. The
LIBR.' Y REORGANIZATION PLAN .
July 29, 1997
Page 5
County may or may not have had veto power over a withdrawal action in the PMA proposal. The
County and the unincorporated area representative, or any single city member, would have the ability
to block a region from withdrawing from the system under the Reorganization Operating Plan.
• Guaranteed Service Levels and the Central Library
The PMA model guarantees funding to continue the hours of branch library service currently existing
regardless of existing property tax generated with any particular region. It states, "all new and other
property tax revenue and other library revenue generated within subregions of the County shall remain
in that area for allocation as determined by the Subregional Councils". The Reorganization Operating
Plan directs$50,000 of new ballot measure revenue from each region to be contributed to the operation
of the Central Library. In addition to this contribution of $250,000 the County will contribute
$150,000 and the City of Pleasant Hill will contribute $200,000 toward operation of the Central
Library.
• Funding
The PMA model and Library Reorganization Operating Plan each provide for new revenues generated
by ballot measures to stay in the region where the revenue is generated subject to allocation by the
regional boards. The Plan states a countywide ballot for additional library revenues cannot be on the
same ballot as any regional measure. The PMA model did not address this point. The Plan also calls
for a countywide ballot in 1998 ( most likely the June election). A Central Region ballot measure
could generate significant funding for library services in Concord. There are 36,000 parcels in the City.
A$20.00 parcel tax would raise approximately$670,000 annually in Concord($720,000 less share of
$50,000 regional contribution to Central Library). This funding could be used in part for capital or
operating purposes.
• Business Library
The PMA model provided for the transition of some of the, "centralized collection and public services
provided at the Central Library" to, "other libraries within the County". The Reorganization Operating
Plan retains centralized collection and public services at the Central Library. The PMA model
relocated the Business Library at the Central Library to Concord. The Reorganization Operating Plan
retains the Business Library at Central. In lieu of this transfer, Concord receives $170,000 annually
for operating costs on completion of the expansion of the Concord library. These funds are from non-
library revenues and cannot be taken from any future library revenue ballot measure. The$170,000
represents the present cost to operate the existing Business Library.
• Concord Library
The PMA model stated, "Contra Costa County, from funds other than those designated for libraries,
shall contribute $1.5 million toward the construction of expanded library facilities in Concord. The
City of Concord shall contribute at least $1.5 million toward such a project". The Reorganization
Operating Plan retains this funding from sources, "other than those currently designated for non-capital
LIBR. Y REORGANIZATION PLAN
July 29, 1997
Page 6
library operations and other than those from future ballot measures". The Plan adds, "an additional
$170,000 annually, subject to annual increase based on operating costs, to expand hours and services
at the Concord Library, at the time that facility renovation and expansion is completed. Such services
and hours shall be determined by the City of Concord". These funds will come from sources other than
non-capital library operations or future ballot measures. The expenditure of these funds will not be
subject to regional board review. -
The Plan includes a requirement that should Concord withdraw from the County Library within 5 years
after the library expansion is completed the full $1.5 million shall be returned to the County. A
declining scale is established for years 6 through 10 with Concord owing no funds to the County for
withdrawal in year 11, or later(Exhibit B).
• Performance Contract
The PMA model provides for performance contracts to be developed between the County and each
region. An element of the performance contract is allowing withdrawal of a region and consent by the
County to transfer, "all property tax within that region to the Subregional entity". A draft performance
-contract was not developed at that time. The Reorganization Operating Plan states if long term cost
savings of 10%, or more, are identified by a region all the parties to the Performance Contract shall
meet and confer over cost of service issues. If agreement is not achieved, the region, by unanimous
vote of the regional boards may withdraw from the County Library by giving one year notice at least
90 days prior to the end of the fiscal year. Any region withdrawing would take with it the property tax
revenues generated within the region.
The financial benefits to Concord under the County's Reorganization Operating Plan create new
considerations for the "go-it-alone" option studied by Arroyo & Associates. The Reorganization Operating
Plan provides $1.5 million for expansion of the Concord Library and $170,000 annually in operating costs
on completion of the expansion. These financial contributions alter the comparisons under Arroyo's five
scenarios for Concord withdrawing from the County system (Exhibit E). In summary,
• Under Scenario #1 Arroyo found the City could withdraw from the County system and achieve a
surplus in revenue of$94,467 per year with no change in the service level at the Concord library. This
option did not assume any expansion of the existing library.
• Withdrawal Scenario#2 included a buy-up by the City to increase library hours from 42 hours per week
to 52 hours per week and a 36% increase in the books and materials budget. This required a
contribution by the City of$95,842 per year above the existing library funding level of$1,080,249 per
year.
• Scenario #3 maintained the current 42 hours of operation, expanded the books and materials budget,,
by 36% and included a$3 million expansion of the facility funded by the City. This option required
additional annual funding of $199,884 to support the expanded facility and increased books &
materials budget.
LIBR Y REORGANIZATION PLAN ,
July 29, 1997
Page 7
• Scenario#4 increased hours to 52 per week, substantially increased the book& materials budget and
provided for City funding of a $3 million expansion. This required a $373,724 annual increase in
operating costs. Scenario#5 was similar to#4 with Concord partnering with Clayton.
The contribution by the County of $170,000 in annual operating revenues removes the financial
advantages to Concord's withdrawal stated in scenarios 1, 2 and 3. The$1.5 million in capital construction
funds contributed by the County significantly alters the"go-it-alone"library expansion scenarios (Scenarios
3, 4 and 5) because these required Concord pay the full $3 million for expansion of the Concord library.
The Arroyo&Associates study made several assumptions regarding the potential success of the City
in negotiating a transfer of the existing books and materials at the Concord branch to City ownership. The
study.assumed these materials would be transferred fee of charge. If this were not possible, Arroyo
estimated the negotiated cost of books and materials to be, "$150,000 to $300,000". The $300,000 figure
represented a cost per item in the high end of a"$2.50 to $5.00 per item" for the library's current collection
of 66,304 items. Arroyo noted two other communities that withdrew from County operated systems,Rancho
Cucamonga and Mission Viejo,received all materials from the County for free. There is no controlling state
law in this area. Contra Costa County could refuse to negotiate a transfer of books and materials in which
case the City may be required to pay $300,000, or more, to establish a collection.
The costs for administrative services in scenarios 1-5 which the City would need to assume on
withdrawal from the County system are included in Arroyo's cost estimates for each scenario. The ability
of the City to negotiate a transfer of property tax from the County,however,is not assured. As Arroyo notes,
the only state law which mandates County return of property tax to cities that withdraw is SB'1998 which
applies only to Los Angeles County. Failing a successful negotiation with Contra Costa County, it appears
Concord's option for receiving existing library dedicated property tax would depend on receiving 2/3rds vote
on a ballot measure. In order to achieve a 2/3rds favorable vote, a successful library ballot measure depends
on united support from a variety of groups and individuals. If withdrawal from the County system does not
have strong support in the community it is unlikely a ballot measure would succeed. The financial
incentives offered to Concord in the Library Reorganization Operating Plan are available to Concord
residents and businesses without risking a ballot measure vote.
The Board of Supervisors did not include an approval mechanism for cities when it adopted the
Reorganization Operating" Plan. If a city stays within the County Library System the Plan will guide the
administration of the library system by the County Board of Supervisors. The PMA model incorporated a
means for consensus building and approval which was the threshold of receiving approval by a majority of
the cities representing a majority of the population and approval by the County Board of Supervisors.
The Library Reorganization Operating Plan is not binding. Any future Board of Supervisors could
change it. This is problematic for Concord because the financial commitment contained in the plan may not
be secure. A future Board could unilaterally alter the amount or terms of the funding. In addition, the
Library Reorganization Operating Plan as presently stated is lacking in necessary details regarding the timing
of this funding and other conditions surrounding its use. It is noted the County is completing an agreement
with the City of Pleasant Hill for that city's contribution of$200,000 to the Central Library (Exhibit B, page
2). It is recommended an irrevocable agreement be negotiated between the City and the County for the$1.5
' LIBR Y REORGANIZATION PLAN
July 29, 1997
Page 8
million capital and$170,000 operating funds contained in the Plan. County staff has indicated that County
Counsel is developing an agreement which incorporates all the deal points contained in the Reorganization
Operating Plan that directly affect Concord. A draft agreement should be ready for review within the next
few weeks.
County Library staff sent a letter to the Mayors of 17 cities announcing a joint first meeting of the
regional boards and requesting appointment of a City Council member to sit on the board(Exhibit Q. This
meeting was rescheduled to July 31, 1997 (Exhibit D). It is suggested the Council make the requested
appointment to the Central County Regional Board to attend the first joint meeting of the five regional
boards set for July 31, 1997.
Fiscal Impact
The$1.5 million contribution by Contra Costa County requires a matching contribution by the City of
Concord of at least$1.5 million for expansion of the Concord library. The City's share of$1.5 million has
been identified in the City's 10-year budget plan. Future City Council action is required to commit funding
to this project. If$1.5 million is not received from Contra Costa County for library expansion the City
would be required to fully fund the estimated $3 million expansion cost. The Library Reorganization
Operating Plan provides $170,000 in library operating funds to the City on completion of the expansion.
Public Contact
Posting of the agenda. Copies of this report have been distributed to the City's former Library Task
Force members, the County Librarian, Concord Branch Librarian and the County Administrator's Office.
Conclusion
For years, cities, the County and community groups have debated the problems and the possible
solutions for improving library services. The City Council was the primary mover in the commissioning
of the David M. Griffith & Associates study which comprehensively examined issues relevant to library
governance, service delivery and funding. The key issues in this debate for the City Council have been, 1)
equitable return to source of funding, 2) improvements to the Concord library, and 3) increased local control
of library service delivery. The long and sometimes painful review process which started with the DMG
study and which has resulted in the Library Reorganization Operating Plan has substantially addressed these
key issues:
Return to Source
Regions now have the assurance new library revenues will stay within the region. This did not exist
in 1992 and 1994 when ballot measures for library funding were defeated. Residents now know their
tax dollar will support services they access. This could enhance future efforts to raise funds for
libraries.
LIBR. Y REORGANIZATION PLAN
July 29, 1997
Page 9
Improvements to the Concord library
The Reorganization Operating Plan includes $1.5 million for expansion of the Concord library and
operating funds of$170,000 annually on completion of the expansion. The return-to a region of new
revenue presents a significant opportunity to further improve library services.There are 36,000 parcels
in the City. A $20.00 parcel tax, for example, would raise approximately $670,000 annually in
Concord($720,000 less share of$50,000 regional contribution to Central Library). This funding could
be used in part for capital or operating purposes. A total of$400,000 from such a ballot measure could
finance a 10,000 to 15,000 square foot expansion in addition to the 8,000 square feet made possible
by the$1.5 million contribution by the County(plus $1.5 million matching funds from the City). The
total facility size could therefore be in the range of 31,000 to 36,000 square feet. This would leave
$270,000 from a ballot measure for annual operating funds. These estimates are very preliminary and
are intended only to show the scope of possibilities.
Local Control
The Library Reorganization Operating Plan does not accomplish all the objectives of the Council
regarding local control. A minimum base level of service of 29 hours per branch hasbeen established.
The regional boards will determine the service needs and hours of operation within their region for
those services and hours that are funded by new revenues and growth on existing revenues over and
above those revenues needed to fund base level (29 hours)services. It is the stated intent of the Board
of Supervisors to enact the decisions of regional boards regarding new revenues. The County,however
retains a greater degree of control of library service delivery than envisioned in the PMA model.
In weighing all of the advantages and disadvantages of the Library Reorganization Operating Plan and
scenarios for withdrawing from the County library system studied by Arroyo & Associates, as modified by
the benefits to Concord under the Plan, it appears the Reorganization Operating Plan meets most of
Concord's needs. The Library Reorganization Operating Plan presents the best chance for enhancing the
delivery of library services to Concord's residents and businesses.
Alternative Courses of Action
1. Approve the Contra Costa County Library Reorganization Operating Plan subject to the City and
County negotiating an irrevocable agreement setting out the conditions of the City's participation in the
Plan.
2. Do not approve the Contra Costa County Library Reorganization Operating Plan.
3. Modify the Contra Costa County Library Reorganization Operating Plan and approve the modified
version subject to the City and County negotiating an irrevocable agreement setting out the conditions of
the City's participation in the Contra Costa County Library Reorganization Operating Plan.
LIBR Y REORGANIZATION PLAN
July 29, 1997
Page 10
Council Committee Recommendation
A Council Committee has not reviewed the Contra Costa County Library Reorganization Operating
Plan.
Recommendation for Action
Alternative 1., approve the Contra Costa County Library Reorganization Operating Plan subject to the
City and County negotiating an irrevocable agreement setting out the conditions of the City's participation
in the Plan.
In addition,staff recommends that the City Council appoint one of their members to the Central County
Regional Board, and that the appointee attend the joint meeting of the regional boards on July 31, 1997.
Prepared by Peter Dragovich
Senior Administrative Analyst
Edward R. James Lydia Du Borg
City Manager Assistant City Manager
Enclosures:
Exhibit A Report to Mayor and Council, "Proposed Model for Provision of County-Wide Library
Services", December 10, 1996.
Exhibit B Report to Contra Costa County Board of Supervisors, "Reorganization of Library Services",
June 24, 1997.
Exhibit C Letter from Anne Marie Gold, Contra Costa County Librarian, to Mayor Bill McManigal,
June 18, 1997.
Exhibit D Memo from Anne Marie Gold, Contra Costa County Librarian, to City Managers, July 2,
1997.
Exhibit E Report to Mayor and Council, "Concord Municipal Library Feasibility Study", January 28,
1997.
Exhibit A ,
Concor REPORT TO MAYOR AND COUNCIL
TO THE HONORABLE MAYOR AND COUNCIL: -
DATE: December 10, 1996
SUBJECT: PROPOSED MODEL FOR PROVISION OF COUNTY-WIDE LIBRARY
SERVICES
Report in Brief
The cities and County have been participating in a Countywide study for delivery of library services.
The study is being performed by a consultant and-managed by the Public Managers' Association, (PMA).-
As a result of the work completed thus far by the consultant, the PMA has developed a set of"deal points"
which is intended to represent a framework for a model for delivery of library services for Contra Costa
County.
The model was reviewed and approved at the County Library Commission meeting of
November 6, 1996. This model was also presented to the Mayors' Conference at their meeting of November
7, 1996. At this meeting, the cities and the County were requested to review and take action regarding the
proposed model. The model achieves the following:
• Provides for the potential to increase library service levels in the future and provide residents with
more local control over how libraries are operated;
• Provides local decision-making authority over the hours and levels of service;
• Guarantees continuation of the 29 hours per week minimum service in all branch libraries
regardless of property tax generated in any particular city;
• Recognizes the importance of"return to source" by guaranteeing all future-property tax growth
will remain in the region generated;
• Provides for the enhanced possibility for passage of a revenue measure for additional library
services and/or capital improvements;
• Guarantees all future voter-approved library revenue increases will remain in the region generated;
• Provides for continuation of the existing library management structure;
• Guarantees all current library staff will remain employed.
Staff believes the proposed model and deal points address the concerns expressed by the City Council
concerning the provision of library services and, therefore, recommends approval.
Proposed Model for Provisi--of County-Wide Library Serxices
December 10, 1996
Page 2
Backeround
At their meeting of October 24, 1995, the City Council adopted two recommendations relative to
library service delivery. The fust authorized a study to determine the feasibility of a"go it alone"library
alternative for the City of Concord. The second recommended to the Mayors' Conference that an
independent study be performed to address the feasibility of various models of library service delivery and
governance within Contra Costa County. Attached is a copy of the October 24 Report to Council which
gives detailed background relative to concerns for the current library system and the issues of most
importance for Concord which relate to levels of service at the City's branch library, financing and"return
to source" revenues. At subsequent meetings Council approved a contract with Arroyo Associates, Inc.,to
perform the"go it alone"feasibility study, and participation with the cities and County for a County-wide
study to be performed by David M.Griffith&Associates, (DMG). The PMA was authorized by the cities
and County to manage the DMG study.
Discussion
The two studies mentioned above are near completion. Both conclude that Concord could manage its
own municipal library system with the property tax revenue presently generated within the City. This level .
of funding would provide a higher level of service than presently being delivered since the current tax dollars
being generated in Concord do not entirely return to source. The funds that do not return to source are used
to subsidize other areas of the County. Assuring all funds return to Concord will either require a change in
the present law which governs how these dollars are shared, or some other means to assure the tax dollars
can be replaced in-kind. Although the City's"go it alone"study is not quite complete,it illustrates a number
of alternatives that can be pursued by the Council should the model developed by the PMA not be
implemented. A copy of this study will be sent to the Council under separate cover.
The model and deal points which were developed by the PMA with the assistance of DMG, provide
for the likely potential to improve service levels in the future, and expand the present branch library located
at the Civic Center. Attached is a copy of a memorandum from the PMA which fully describes the
recommended governance structure and lists all the deal points approved by a large majority of the members
of the PMA.
The proposed model for the Countywide library system achieves the following:
• Provides for the potential to increase library service levels in the future and provide
residents with more local control over how libraries are operated;
• Provides local decision-making authority over the hours and levels of service;
• Guarantees continuation of the 29 hours per week minimum service in all branch libraries
regardless of property tax generated in any particular city;
• Recognizes the importance of "return to source" by guaranteeing all future property tax
growth will remain in the region generated;
• Provides for the enhanced possibility for passage of a revenue measure for additional.library
services and/or capital improvements;
• Guarantees all future voter-approved library revenue increases will remain in the region
generated;
Proposed Model for Provisi-, of County-Wide Library Services
December 10, 1996
Page 3
• Provides for continuation of the existing library management structure;
• Guarantees all current library staff will remain employed.
The model addresses the Council's major concerns relative to the current County library system by
inclusion of the following specific deal points:
1. Provides for more local control over service levels by establishing a five-region system of
governance. Concord would belong to the Central Region which includes the Cities of Martinez,
Pleasant Hill, and Clayton and the unincorporated areas of the region.
2. Provides for all future revenue derived from growth,or any future revenue initiative approved by
the voters, to remain in the Central Region.
3. Provides that the County will contribute$1.5 million toward construction of an expanded library, .
and that Concord will contribute at least$1.5 million toward the expansion.
4. Substantially increases the present level of service by relocating the Business Library now housed
in the Central Library to Concord upon completion of the expansion mentioned in item 3, above.
This model was reviewed and approved by the County Library Commission at their meeting of
November 6, 1996. The model was reviewed at the November 7, 1996 Mayors' Conference, whereupon
cities were requested to consider and take action relative to the proposal within the next month or two. The
proposal further.provides that the plan become effective July 1, 1997 upon approval by the Board of
Supervisorsand a majority of the cities representing a majority of the population(exclusive of Richmond,
which has its own municipal library system). It is anticipated that the implementation period will take from
two to four years.
The PMA has recommended the following time line:
November-January The Board of Supervisors and each of the affected cities within the County
will take action upon the proposal and appoint representatives to the
respective Subregional Councils.
February. Subregional Councils convene for the purpose of organization and appoint
its representatives to the County Library Commission. The Board of
Supervisors makes its appointment.
March Library Commission meetings. are held for the purpose of appointing its
technical advisory committee and for identifying transition issues.
April Library Commission makes recommendations to the Board of Supervisors
and the Subregional Councils on central library services for fiscal 1997-98.
Proposed Model for Provisi— of County-Wide Library Services
December 10, 1996
Page 4
March-May Subregional Councils decide funding arrangements, service levels, and
hours of operation.
July 1, 1997 New system launched.
Conciusion
Although it is possible for the City to provide its own municipal library system as concluded by the"go
it alone" study and the County-wide study, the proposed model and deal points developed by the PMA
provide for enhanced library services which specifically address Concord's concerns, while also greatly
improving the outlook to provide improved services County-wide. This proposal keeps the County library
system intact while also providing for more local control of services.
Should the PMA proposal not obtain the necessary approval from the County and a majority of the
cities representing a majority of the population,the City Council may, at some later date, wish to pursue an
alternative which provides for a municipally owned and operated library system.
Fiscal Impact
The City will be required to at least match the amount of the County contribution of$1.5 million for
expansion of the existing branch located at the Civic Center. It is anticipated that the City would continue
to contribute the present$173,000 currently coming from Redevelopment Agency funds.
Public Contact
Posting of the Council Agenda. Copies of this report have also been distributed to the City's former
Library Task Force members, the County Librarian, the County Branch Librarian, and the City's
representative on the County Library Commission.
Recommendation for Action
That the City Council approve the deal points contained in the attached PMA memorandum dated
November 7, 1996, for development of a new governance model for provision of Countywide library
services.
Proposed Model for Provisir-of County-Wide Library Services •✓
December 10, 19§6
Page 5
ward R. James
City Manager
Enclosures: I. Report to Council dated October 24, 1995
2. PMA Memorandum dated November 7, 1996
1210L.EBRIUT ,
PUBLIC MANAGERS'ASSOCIATION OF CONTRA COSTA COUNTY
November 7, 1996
TO: MAYORS' CONFERENCE
BOARD OF SUPERVISORS
FROM: PUBLIC MANAGERS'ASSOCIATION
SUBJECT: LIBRARY S'T'UDY
We aro pleased to transmit recommendations on library scrvico in Contra Costa County. As you
know,the Association retained David M. Griffith and Associates to assist us in this effort. A
summary of the reoommendations are outlined below. The report of the consultant supporting
these recommendations will be forthcoming within the next 30 days.
This has not been an easy task. There are a myriad of interests that had to be considered_ No one
got everything that was wanted. What is advanced represents the views most of our membership.
It is what we believe to be doable now. R represents first steps,not an end. Our goal has been to
deal with all interests,not reduce library service,provide for a foundation of support for future
funding of library services, and to achieve as much consensus as possible.
Clearly,even with what is suggested,the library service in this County is under funded. New
governance structures,new financing models,changed work rules and the more liberal use of
volunteers will not make the library service what it should be. If the recommendations are
implemented and that is,all that is done, library service will not likely improve. It will require
more money to do what we all believe should be done. Libraries should have more resources and
be available to the public more hours.
To get more money,libraries must have support. To gain wide spread support,there must fust
be enthusiastic support from all the cities. W-AQi all that the PMA recommends along with
looking at most creative approaches to service delivery, focusing on serving the public and
using more volunteers,where appropriate,we will have gone a long way to secure public support
and confidence that will be necessary to generate additional resources.
Major conclusions and recommendations are as follows:
• The County Library,governed by the Board of Supervisors, will remain in place for the
delivery of library services in the County. The County shall provide central library
services(purchasing, administration,information systems, labor relations, and general
:Il OI •l.11l v► %wuJ.A% .tI Lr- w aa•:u -.—. ------------ -• -
Mayors' Conference
Board of Supervisors
Library Study
November 7, 1996
Page 2
management) for all libraries. Additionally the County shall provide services to
subregions within the County pursuant to decisions made by Subregional Library
Councils.
• rive Subregional Councils are proposed to be created within the System. Each
Subregional Council,made up of representatives of the.cities and the county within that
area,would have the responsibility of allocating property tax and other library revenue
receipts within the region,determining levels of library service,and hour;of operations.
• Each Subregional Council would appoint one representative(and the Board of
Supervisors would appoint one member)to the County Library Commission replacing the
existing one. This Commission would have authority to recommend to the Board of
Supervisors the budget and allocation of funds for central library services and stafEng;
reommending policies and procedures related to library operations; and nominating
candidates for final consideration for Library Director. This Commission would also be
charged with recommending the appropriate level of central services to the Board of
Supervisors and the Subregional Councils. A technical advisory committee consisting of
one city manager from each of the five regions and the County Administmtor may be
appointed by the Subregional Councils.
• In establishing the new system,there is guaranteed funding to continue the hours of
branch library service that currently exist within the County irrespective of property tax
generated.This,in effect,keeps everybody whole. In recognition of the importance of
the"retum to source'concept,however,all new and other property tax revenue and other
library revenue generated within subregions of the County shall remain in that area for
allocation as determined by the Subregional Councils.
• Subregional Councils are also the forum through which decisions are made regarding
incrx=ud funding. Any increased funding shall be retained within the subregion.
• The Ccntral Library located in Plcasent Hill currently operates above the branch level of
service and hours as a result of housing a centralized collection and providing eenhglized
public services. Under the new system,the centralized collection and public services
provided at the Central Library will be restructured or relocated to other h'bmries within
the County during a transition period. As long as the Pleasant Hill facility retains some
of the centralized collections or public services,it will continue to operate.at a level
above the average branch level of service and hours.
• Contra Costa County, from funds other than those designated for libraries, shall
*jr f O1 •1.1 l i VA' nn,A lu l %AULLA 'LL-14—.Ju . 11•'!U �a a a tWW ILMU&AIL ' ai a v r aivvwv r rr -ti v
Mayors' Conference
Board of Supervisors
Library Study
November 7, 1996
Page 3
contribute S 1.5 million toward the construction of cxpandod library facilities in Concord.
The City of Concord shall contribute at least S 1.5 million toward such a project.
• The Business Library now housed in the Central Library shall be relocated to Concord.
• When the City or Hercules constructs and makes ready for occupancy a library facility in
that City, funding shall make available for operation of this new branch equal to the
average cost of 29 hours of service per week in West County full service branch facilities.
This amount shall be generated by having each of the full-service branches contribute
equally to the base level of funding for that branch. Funds shall be tdkcn"off the top"
before allocations arse made to the subregional councils. Once established, the funding
for Hercules shall increased only as determined by the West Subrogional Council from
funds available and generated in the West subregion.
• After approval of this proposal by the Board of Supervisors and a majority of the cities
representing a majority of the population (exclusive of Richmond)the new plan shall
become operative on July 1, 1997. There will be.a two-four year transition period to fully
implement the new system.
• In approving this new governance and financing arrangement, the County does hereby
agree that should a subregion withdraw from the system pursuant to provisions of a
performance contract, the County consents to transferring all property tax within that
region to the Subregional entity.
• Building occupancy casts shall not exceed the actual cost of providing service.
• All current library staff'will remain employed. Any staff changes related to the transition
to the new system will be attempted to be brought about by attrition. Accordingly, it is
recommended that vacant positions not be filled or be filled only on a temporary basis
until permanent staffing needs for the new system are determined.
The.PM A also recommends the following timeline:
November- January--The Board of Supervisors and each of the affected cities within the
County take action upon the proposal and appoint representatives to the respective Subregional
Councils.
1�1 DI •�.1 1/ vt .nuwuv„ .as ac vv as•:. ..... .---._, ,,, .,
Mayors' Conference
Board of Supervisors
Library study
Novcmbcr 7, 1996
Page 4
February---Subregional councils convene for the purpose of organization and appoint its
representatives to the County Library Commission. The Board of Supervisors makes its
appointment.
March---Library Commission meetings are held for the purpose of appointing its techuical
advisory committee and for identifying transition issues.
April—Library Commission makes recommedations to the Board of Supervisors and the
Subregional Councils on central library services fnr fiscal 1997-98
March---May—Subregional Councils decide funding arrangements, servdce levels, and hours of
operation.
July t, 1997—New System Launched
'Phis proposal will be reviewed by the City-County Relations Committee at its meeting of
November 6. An update of its reaction will be presented at the meeting of the Mayor's,
Conference on November 7.
TO: BOARD OF SUPERVISORS
Exhibit B
FROM: Phil Batchelor,County Administrator
Anne Mane Gold,County Ubrarian
DATE: June 24.1997
SUBJECT: Reorgantzation'of Library Services
SPECIFIC REQUEST(S)OR RECOMMENDATION(S)&BACKGROUND AND JUSTIFICATION
1. APPOINT Board of Supervisors members to represent the County on regional library bg.:afds as'
follows:
1
West District 1-Rogers
lamorinda District 11-Uilkema
South District III-Gerber
Central District IV-DeSaulnIer
East DistrictV-Canclamilla
2. APPOINT Board of Supervisors members as voting alternates to represent the County on regional
library boards as follows:
West District 11-Uilkema
Lamotinda District Ill-Gerber
South District IV-DeSaulnier
Central District 11-Canciamilla
East District V-DeSaulnier .
3. DIRECT Clerk of the Board to initiate proceeding to solicit interested applicants for appointments
for five unincorporated atea'representatives to regional bokds. as outlined In the Reorganization
Operating Plan(Attachment A).
4. AUTHORIZE the County Administrator to issue a Request for Proposal(Attachment B)for a poll to ,
determine interest in placing a parcel tax measure on a ballot in 1998 for increased revenues for
library services and to negotiate and execute such a contract,In an amount not to exceed$40.000.
5. DIRECT the County librarian to provide quarterly update reports to the Board of Supervisors on
the status of the reorganization.
CONTINUED ON ATTACHMENT: __X_ SIGNATURE- _ .
_RECOMMENDATION of COUNTY ADMWISTRAT0P,_RECOMMENDATI0N OF BOARD COMMITTEE
_APPROVE OTHER
SIGNATURE(S):
ACTION OF BOARD ON APPROVED AS RECOMMENDED_OTHER_
VOTE OF SUPERVISORS
1 HEREBY CERTIFY THAT THIS IS A TRUE AND CORRECT COPY OF
_UNANIMOUS(ABSENT 1 AN ACTION TAKEN AND ENTERED ON THE MINUTES OF THE BOARD
AYES: NOES: OF SUPERVISORS ON THE DATE SHO%%-.
ABSENT: ABSTAIN: -
ATTESTED
Contact: Ann4 Marg Gold, 646-6421 PHIL BATCHELOR,CLERK OF THE BOARD OF
SUPERVISORS AND COUNTY ADMWISTRATOR
cc: County Lbr uy
County Adrrvrdstntor Oy DEPUTY
p:Ve e9\bos697.doc
Reorganization of Library Services
Board of Supervisors Agenda
June 24. 1997
Page 2
BACKGROUND:
At its meeting on April 15, 1997 the Board of Supervisors approved the outlines of a reorganization for --
library services. Attachment A is a Reorganization Operating Plan whlbh includes all the agreed upon
changes in the provision of library services by the County Library. There are a number of actions which
will need to be taken to implement the reorganizatiod.otfibraFy-sepAces.
RF-GIONAL BOARDS
In order to proceed with the formation of the regional boards, the Board of Supervisors must appoint
members to the County seats on the new boards. It Is recommended that a Supervisor be appointed to
represent the region generally similar to the territory of their supervisorial district. it is also
recommended that a voting alternate be appointed for each region.
The Board of Supervisors is also charged with appointing one member to each regional board
representing the unincorporated area within each region. It Is recommended that the Board of
Supervisors direct the Clerk of the Board to Initiate proceedings to solicit interested applicants for such
seats.
The first meetings of the regional boards will take.place in midJuty so all appointments should be
completed by that time.
VOTER POLL
As part of the reorganization, regional ballot measures for increased library resources must be placed
on a ballot in 1998. in order to prepare for such ballot measures it Is typical to undertake a poll to
determine voter interest. Attachment.B Is a Request for Proposal to solicit vendors to perform such a
poll. It is recommended that the County Administrator be authorized to negotiate and execute such a
contract,in an amount not to exceed$40,000.
(QUARTERLY UPDATES
There are a significant number of additional activitiessunde vray in..the. Implementation—of--the.
reorganization of library services. These include,but are not limited to:
1. Finalize outlines of territory of each region.
-2. Definition of base level library services and resulting financial projections.
3. Definition of source of County funds for*Central library operations and Concord facility renovation
and operations.
---�4. Completion of agreement with Pleasant Hill for$200,000 support for Central library services.
5. Stakeholder and regional board input on makeup of regional ballot measures.
6. Determination of type and amount of ballot measure.
7. Approval of ballot measure by regional boards and Board of Supervisors.
It Is recommended that the County librarian be directed to provide quarterly reports to the Board of
Supervisors on these,and other,activities on the reorganization of library services.
7 V—,C%bot69 7 Ao -
CONTRA COSTA COUNTY LIBRARY
REORGANIZATION OPERATING PLAN
JUNE 1997
LIBRARY ORGANIZATION, FUNDING AND REGIONAL GOVERNANCE
1. The County Library shall provide library services including:
a. community services, including operation of. all library facilities and
community library services in five regions in the county
b. countywide services, including branch and countywide administrative
services, countywide public services, literacy services and detention
facility services
C. support services, including automation, technical services and collection
management
d. administrative services, including general library administration, shipping,
community relations, graphics, volunteer services, facilities management
and capital projects
2. All library employees will be employees of Contra Costa County.
3. Base level library services are defined as the current level of County-funded
services and hours for all services in Section 1. The cost of such services may
be adjusted annually based on increases in the operating costs of each of these
services.
4. The five regions are:
7EastAntioch, Bay Point, Brentwood, Oakley, Pittsburg
Clayton, Concord, Martinez, Pleasant Hill
Lamorinda Lafayette, Moraga, Orinda
South Danville, San Ramon, Walnut Creek, Ygnacio Valley '
West Crockett, EI Cerrito, EI Sobrante, Hercules, Kensington, Pinole, Rodeo, San Pablo
5. Each region is comprised of all the incorporated and unincorporated areas within
the region as legally defined.
6. Each region will have a regional board comprised of:
a. One member from each City Council from each city within the region, to
be appointed by each individual city.
b. One member of the Board of Supervisors, to be appointed by the Board of
Supervisors.
C. One member representing the unincorporated area within each region, to
be appointed by the Board of Supervisors.
U20/971 1A 2 Ann 1
q'Vepglagree da
CONTRA COSTA COUNTY LIBRARY
REORGANIZATION OPERATING PLAN
JUNE 1997
7. Regional boards will meet a maximum of once each quarter.
8. All staffing and costs associated with regional boards will be bome by the cities -
within each region and not from library resources, except to the extent that library
staff are needed to assist in the meetings. Library administrative staff and branch
managers will attend every regional board meeting and work close(V with the
boards, cities, and communities.
9. The charge to the regional boards is to determine service needs and hours of
operation within its region for those services and hours that are funded by new
revenues and growth on existing revenues over and above those revenues
needed to fund base level services. `
10. The regional boards are not charged with the management or oversight of library
operations or involvement with labor relations.
11. The Board of Supervisors remains the overall governing board for the County
Library. It is the clearly stated intent of the Board of Supervisors to enact the
decisions regarding new revenues made by the regional boards.
12. Annually, the County will meet with each city manager to review library services at
their request.
13. Funding for library services will be allocated as follows:
a. All annual library revenues are pooled.
b. Annual costs for all base level services are funded from the pooled
revenues.
C. Any remaining revenues will be reallocated to any region which generated
revenues in excess of the cost of providing all current base level services
library-wide, based on a proportional return to source principal. Library
services to be funded by such reallocated revenues would be determined
by the regional boards.
CENTRAL LIBRARY
1. The Central Library is guaranteed current County-funded levels of hours and
services. These hours and services are considered base level services. This
includes both countywide public services and community services.
680/9711:12 AM 2
. a-Yedplagree.Ooc
CONTRA COSTA COUNTY LIBRARY
REORGANIZATION OPERATING PLAN
JUNE 1997
2. In order to maintain the current level of hours and services an additional
$600,000, subject to annual increase based on operating costs, will be jointly
funded by: -
City of Pleasant Hill $200,000
County . $150,000
Ballot measure revenues $250,000
3. Ballot measure revenues will be contributed equally by all regions at $50,000 per
region, subject to annual increase based on operating costs,.
4. If there has not been a successful ballot measure by November 1998, the
funding will be subject to re-negotiation.
13RANCHES
1. All regions are guaranteed the current County-funded levels of hours and services
at all branches. These hours and services are considered base level services.
2. All outlets are guaranteed the current County-funded levels of hours and services.
These hours and services are considered base level services.
3. The County, communities and cities.will work cooperatively *to identify all areas
currently underserved "or expected to be underserved in the near future.
4. As a region generates current revenues from within the region in excess of the
cost to provide all current base level services library-wide, that region shall utilize
those proportionally reallocated revenues to enhance services or hours or to
reduce current buy-up contributions.
5. The County will fund up to $1.5 million to expand and renovate the existing
Concord library. The City of Concord will fund at least $1.5 million for the same
project. The $1.5 million from the County shall come from funds other than those
currently designated for non-capital library operations and other than those from
future ballot measures.
If the City of Concord withdraws from the County Library within 5 years after the
time that the facility renovation and expansion is completed, it shall return to the
County the full $1.5 million in facility funding. If the City of Concord withdraws from
the County Library anytime within the next five years, it shall return to the County
an annual diminishing scale percentage.
6/2019711 12 AM 3
Q:Yeorglagrce.doc
CONTRA COSTA COUNTY LIBRARY .'
REORGANIZATION OPERATING PLAN
JUNE 1997
Year 1 100%
Year 2 100% _
Year 3 100%
Year 4 100%
Year 5 1001%
Year 6 85%
Year 7 659to
Year 8 45%
Year 9 25%
Year 10 10%
Year 11 0%
6. The County will fund an additional $170,000 annually, subject to annual increase
based on operating costs, to expand hours and services at the Concord Library, at
the time that the facility renovation and expansion is completed. . Such services
and hours shall be determined by the City of Concord. These additional funds shall
come from funds other than those currently designated for non-capital library
operations and other than those from future ballot measures.
7. At the time that the City of Hercules has.completed the construction of a library
facility and it is ready for operation, operations at that facility shall be funded from
the current revenues of the County Library shared equally by all full-service
branches. Hours at the facility would be equivalent to the base service hours
funded for all other branches. Funding for operations at the facility would be equal
to the average cost of base level services at EI Cerrito, El Sobrante, Kensington,_
Pinole and San Pab►o libraries. As a result of the commitment to the City of
Hercules the current County-funded levels of hours and services may be subject to
adjustment.
PERFORMANCE CONTRACT
1. It is agreed and understood by all parties that library service is today and should
continue in the future to be operated in a quality manner at a competitive cost.
2. Library services are now being provided in such a manner through a single
service delivery agency, the County of Contra Costa.
3. If it is determined in the future by a region that service delivery can be achieved
at a documented long term similar service cost savings of 10% or more, all
parties to this agreement shall meet and confer over cost of services issues.
4. If agreement is not achieved, the region, upon unanimous vote of the regional
board, may withdraw from the County Library giving one year notice at least 90
days prior to the end of the fiscal year.
6120/9711:12 AM 4 aveorglagree doc
CONTRA COSTA COUNTY LIBRARY
REORGANIZATION OPERATING PLAN
JUNE 1997
5. Any region withdrawing from. the County Library would take with it the property
tax revenues generated within the region.
NEW REVENUES
1. Any new voter-approved revenues shall be generated on a region-specific basis
and spent for services within the region.
2. Each region will structure the use of proceeds of the ballot measure based on
regional needs.
3. Each region shall contribute towards a portion of the funding for the Central
Library from the ballot measure proceeds with each region contributing $50,000.
4. County-wide regional ballot measures for additional library revenues shall be
placed.upon a ballot in 1998.
5. Within a' region an individual library service area or city could place an additional
measure on a ballot for area or city specific library service or library facility needs.
Such issues will not be placed on the same ballot as the county-wide regional
library ballot measures.
Attachment B
Contra Costa County Library
Request for Proposals
Survey of Voters
June 1997
Introduction --
The-Contra Costa County Library is requesting proposals to conduct a voter opinion
survey within the library's service area which includes all of Contra Costa County except
the city of Richmond. The Contra Costa County Library has a central library in Pleasant
Hill, 18 branch libraries and 4 outlets. In April 1997, the Contra Costa County Board of
Supervisors approved a reorganization plan for the library. One of the specific items
approved was to place a measure before the voters no later t 8 for a parcel tax
to provide increased revenue for the library. At the Curren rme it appears that the
most likely time for a library ballot measure is June, 1998. h • 'mary purpose of the
voter opinion survey is to determine voter willingness t su po ballot measure for
the library, to determine the.dollar amount of a tax rat tha thi f the voters will
support and to determine what specific proposed e e . res a ct reatest level
of support within the regions. Data and recomme d s-from the rve eed to be .
reliable at a regional level as well as for the enti Ii ry se 'ce area.
Background
In September, 1993 the County Libr 0.9 one thir f r b dget when the state
eliminated the Special District Au enta r n Lr hours were cut. the
material's budget was significantly re d m were laid off. Two ballot
measures have failed:
Measure B: The Novembe ballot c nt ' d a $ZO parcel tax for 4 years which
would have provided. fu to s rt sery es ch as law enforcement, 'safety net"
"services for families a c d library The library would have received
10.4 % of the revenu or 00 s 1992/93. Measure B received 64.4%
of the vote.
Measure B: 1 94. 6 th vo upported a $15 parcel tax for the library.
Many citi a riend's o have provided funding for additional hours at many of
the tib ' s. the finan 'al rticipation of cities increased, a number of issues were
raised con ing a go m ce and funding of the library. Many of the cities felt that
they wanted e p ipation in governing the library.- In addition, cities whose
residents contrib Ia gr er amount of property tax dollars than is spent on library
service in the comm anted the. libraries in these communities funded at a higher
level. After a year of work, an ad hoc task force was unable to resolve these issues.
Therefore, the cities and the county funded a study of the library done by David M.
Griffith and Associates. Some of the recommendations of the study were controversial
which resulted in several more months of further refinement. As mentioned above, the
Board of Supervisors recently approved a final proposal for changes in the library,
including placing a measure on a ballot in 1998.
[41 377 I
4wryfp a«
Attachment B
Contra Costa County Library
Request for Proposals
Survey of Voters
June1997
Also, as mentioned above, the library will be organized into five regions, which include
the incorporated cities and the unincorporated areas in the following regions:
West County Central County East County South County Lamorinda
E1 Cerrito Clayton Antioch Danville Lafayette
Hercules Concord Brentwood San Ramon Moraga
Pinole Martinez Pittsburg Walnut Orinda
San Pablo Pleasant Hill
Each of these regions will have a regional board comp 'se o cted and appointed. .
officials. These regional boards will have the authori o e s on the use of
the funds generated from the proposed parcel tax.
Scope of Services
The firm,selected to conduct this survey will:
1. Design a questionnaire whi '1 be revie library. staff. This
questionnaire should be desig ed fol o etafted i ssions with library staff.
The questionnaire needs to be va a it! g .and Spanish .and should be
pre-tested. "
2. Conduct a telephone - ey of a n sample of registered voters in the
Contra Costa Co Lib ervice re The survey should result in a margin
of error of+/- 30 to d confiden el of at least 95% for each region as
well as.the en a se a demographics of the sample must
match the demog hi o 0
3. Collec d analyz a ta.
4. M e ommenda io for a successful voter campaign. The recommendations"
s ul both n ide and by region. The recommendations should
incl of be mi to:
• the Ila a • nt that two-thirds of the voters will support
• argum nd themes that can be used in a campaign,- including
differences by region
• library functions and services that voters are willing to pay to have
improved
• how supportive of a tax measure are certain groups, such as library
patrons, non-users, seniors, long-time residents, residents new to the
county, likely voters, etc.
V .corClrfda
Attachment B
Contra Costa County Library
1 .
Request for Proposals
Survey of Voters
June1997
• the degree to which voters in the county understand the funding
challenges faced by the County Library _
• their overall opinion of the library and its services
Since the survey is being conducted well in advance of the election (9 to 12
months), the library would like to identify what types of events could cause voters
to change their minds prior to the election.
5. Prepare and present 25 copies of a written repo to Colunty Library. In
addition, the report should be made available on d'. c i The report should
contain methodology, analysis and results, co ,lu ' , re c endations and
an executive summary. The report should ables th Mata collected
and analyzed, including the complete cross ab ions.
6. Be available for up to five presentation on di - to any of the following:
Board of Supervisors, Public Managers As ,cia io ayor's Conference, Library
Commission; Library Staff,.Regional Boards.
Selection Criteria
Proposals submitted will be evaluated a c;o o• a to ing criteria:
1. Expertise and experie
• . management II , brief r u of project manager
• political polli aresearch rience
• previous g em3well pspecific emphasis on.similar library
projects
• reference p vio ojects
• kno edge o ditr
• i ry ers a ely d and supervised
2. ro and meth d gy:
• de a ding p of work
•
specs p i method
•
op 'ty o r ew proposed questions on survey
• pre-testi. . estions
• number of interviews to be conducted
• reliability of data, margin of error and confidence level
• comparison of demographic characteristics of sample and those of total
population
• products and data provided (reports, tables, etc.)
q%,_&(�dM
Attachment 13
Contra Costa County Library
Request for Proposals
Survey of Voters
June 1997
3. Ability to complete project in a timely manner - --
• timeline for completion
• description of resources, including personnel and equipment, .t4 conduct
survey and analyze data
current workload of firm
• reliability of past projects
4. Cost
• fixed fee to complete project
• cost per.interview '
• allocation of costs by activity
Cost and Method of Payment
A fixed fee contract will be negotiated before two do The County Library will
pay half of the fee upon execution of the contrac , n ha f the fee upon completion.
of the entire contract.
Timeline for Project
The library anticipates the following tim in I ou fh' subject:to negotiation-and-
amendment
egotiation-and-amendment and can be extended by mut al re ent
June 24 Boar of Su isors ap ro issuing RFP to conduct a poll
-June 26 P ha- 'ss s RFP
July 18 spo - u a
August 1 Cou L bra ith survey consultant
August Go sut tG ops and,pretests survey
August-Septe er Con tan on s survey
September ul t pr preliminary findings
Septemb . 2 Cons Ita presents final report and recommendations
Instruction -or D - osals
Consultants int st in o iding these services to the Contra Costa County Library
should prepare a p os hich includes:
1. Name and qualifications of the principal consultant who will carry out this project.
2. A description of the methodology which will be utilized, including sample size in
each region and in the entire library service area, how sample is obtained, who
actually conducts the telephone poll, statistical significance of the data, and the
areas in which the consultant will make recommendations.
6/1 1/97 4
Q:4eolc4fP.doc
Attachment B
Contra Costa County Library
Request for Proposals
Survey of Voters
June1997
3. Information about the proposed questionnaire, specifically the approximate
number of questions anticipated. and the length of time each survey will take
during the telephone poll. The questionnaire will be identical for all regigns.
4. Identification of any of the work that will be subcontracted.
5. A description of the tables that will be produced from an s's of the data.
6. A timeline for completion of the project.
7. Fixed price to provide the services mentioned bo '
, oke •own by specific
costs. include hourly cost.to provide work no tltr�ed aboddition, some
of the cities may wish to do additional int e ew in individual c+ s i der to get
reliable data-at the city level. The cons 1 an ou • •rovide a ca- stimate, by
city, for each city to add up to 5 quesns • t ey and conduct enough
interviews to have reliable data at the city I.
S. At least 5 recent (within the last r referent fo om the consultant has
performed similar work. Ref ences sty ++d 'nclude e, title, organization or
agency name, phone number a d a•dr ss an description of the.project.
9. Two samples of final written rep s e d y the consultant from similar
surveys.
-Deadline for Prop sal
Five copies of the proposa hou e s + ed by 5 p.m. on July 18 to: `
Ann Ca ssistant County Librarian
• tra o County Library
1 Oak Park Blvd.
leasant Hill, California 94523
Questions
Questions about this - and the project should be directed to Anne Cain at the above
address or at:
Phone: (510) 646-6423
Fax: (510) 646-6461
E-mail: acain@mail.contra-costa.lib.ca.us
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Exhibit C
County Library Contra rn Anne ati Gold
REC ATED County 'br 'an
1750 Oak Park Boulevard Costa
l�Cl1 Anne enley Cain
`leasant Hill,Califomia 94523-4497 st `JUN 2 3 1997 Ass'swntCounty tabr8,fan
,.,10) 646-6423 County
FAx(510)646-6461
CITY I'VG'i1'8. f}rrtul_
t-_
June 18, 1997 --
The Honorable Bill McManigal �`�•�- �
City of Concord
1950 Parkside Drive
Concord, California 94519
Dear Mayor McManigal :
As part of the reorganization of library services, regional boards in all five regions of the county are in the
process of being formed. Attached you will find the Reorganization Plan which outlines pertinent
information about the new regional boards.
The City of Concord has one seat on the regional board of the Central region. A member of your City
Council should be appointed to fill that seat. It is at the option of the Council whether to set a term for the
seat and whether the City will choose to appoint a voting alternate.
A joint first meeting for all regional boards has been scheduled as follows:
DATE: Thursday, July 24, 1997
TIME: 7:00 p.m. - 9:00 p.m.
LOCATION: Acalanes High School Multipurpose Room
1200 Pleasant Hill Road, Lafayette
The joint meeting will provide all regional board members an opportunity to meet together to review
common issues as well as meet separately in their own regional board structures. The Contra Costa
County Library Commission will also be joining the regional boards at this meeting, as well as library
supporters and Friends members.
Please have your appointment process completed in time for your city representative to attend this meeting
and notify the County Library of your representative to the regional board.
Thank you for your support of library services in this county. I look forward to working with you and your
city's representative to improve library services in this county.
Sincerely,
�f
Anne Marie Gold
Contra Costa County Librarian
,c: Edward R. James, City Manager
Dr. William H. Riggle, Commission Member
Chris Takata, Branch Librarian
Dierdre Katz, Friends President
q:\rcorg\citvlt.doc
'
CONTRA COSTA COUNTY LI.MMY Exhibit D '
RECECc.
IVFr? � ..
DATE: July 2, 1997 JUL U 7 1991
CITY iYwn 0. Urrit;E
TO: City Managers
FROM: Anne Marie Gold, Contra Costa County Librarian
SUBJECT: Rescheduling of Data of the First Regional Library.
Board Meeting
Due to a conflict with a League of California Cities meeting, the date for the first
joint meeting of all the regional library boards has been rescheduled to the
following:
DATE: Thursday, July 31, 1997
TIME: 7:00 p.m. - 9:00 p.m.
LOCATION: Acalanes High School Multipurpose Room
1200 Pleasant Hill Road, Lafayette
The joint meeting will provide all regional board members an opportunity to meet
together to review common issues as well as meet separately in their own regional
board structures. The Contra Costa County Library Commission will also be joining
the regional boards at this meeting, as well as library supporters and Friends
members. A formal agenda will follow in the week preceding the meeting. Please
inform your Mayor and Council of this change.
I hope you will be able to make this meeting as I feel that it is an important
opportunity to initiate the partnerships for future success for the library
reorganization.
cc: Commission Member
Branch Librarian
Friends President
q:\reo rg\citychg.doc
Exhibit E
IZ
ConeC, REPORT TO MAYOR AND COUNCIL
TO THE HONORABLE MAYOR AND COUNCIL: -
DATE: January 28, 1997
Ste: CONCORD MUNICIPAL LIBRARY FEASIBILITY STUDY
Report in Brief
The City's consultant has completed a feasibility study to determine whether Concord could provide
its own municipal library services. The major finding of the study is that the City could indeed provide a
higher level of service,while not increasing the revenue which currently flows to the County to support the
existing system. The study further finds that graduated increases in funding for a municipally run library
could provide expanded services considerably above those than could otherwise be provided by increased
Countywide funding under the present distribution formula that does not return revenues 100%to the source
from which they are derived.
Because city and County review of the Public Manager's Association(PMA)proposed model for the
delivery of countywide library services is currently underway it is recommended the Council take no action
at this time other than to accept the consultant's report. By accepting the report the Council preserves
options to pursue delivery of library services independent of the County Library System at any time in the
future.
It must be emphasized that should the City Council choose to pursue a municipally run library
alternative, a much more detailed study would have to be accomplished before actual implementation. The
major purpose of this study is to determine if any fatal flaws exist which would preclude a"go it alone"
library, and what levels of service could be provided by various funding amounts wherein all present and
future revenues return 100% to the City. The study concludes that there are no fatal flaws. A number of
library alternatives are presented below and described in more detail in the attached consultant's report.
Most of the alternatives fall short of the levels of service provided by a number of California cities that
have, for years, traditionally run their own library system; however, considerably enhanced services are
certainly possible under the options described by the consultant than could otherwise be provided under the
status quo.
City of Concord Library Study
January 2$, 1997
Page 2
Background
The City of Concord participated in a countywide study of library services managed by the Public
Manager's Association(PMA) and conducted by David M. Griffith&Associates (DMG). On December
10, 1996 the Council approved the proposed model for the provision of countywide library services
contained in the PMA memorandum dated November 7, 1996(Exhibit A). Concurrent to the countywide
study the City hired Arroyo & Associates to conduct a study of options for the City to provide library
services independent of the County Library System. This report summarizes the findings of the City's
library study.
Discussion
The attached Executive Summary(Exhibit B)describes five options for,the City to withdraw from the
County Library System. Arroyo & Associates state that any of the five options would result in the City
providing library services in a more cost-effective manner at a higher level of service than what is.presently
received from the County system.
Arroyo&Associates benchmarked service levels in urban county and municipally run library systems,
across the state and examined the inadequate funding levels which exist in the County library System. The
study finds that in addition to the County returning to the City less in services than City residents contribute
in tax dollars,Concord receives a level of service below the county average. That is,in addition to paying
into the County system approximately $320,000 per year more than received in services, the servicer
Concord receives are below average when compared to service levels in the county. Similar findings were '
made in the Library Master Plan prepared by the County.
The major finding of the study is that the City could indeed provide a higher level of service,while not
increasing the revenue which currently flows to the County to support the existing system. The study
further finds that graduated increases in funding for a municipally run library could provide expanded
services considerably above those than could otherwise be provided by increased Countywide funding under
the present distribution formula that does not return revenues 100% to the source from which they are
derived. The major purpose of this study is to determine if.any fatal flaws exist which would preclude a"go
it alone" library, and what levels of service could be provided by various funding amounts wherein all
present and future revenues return 100% to the City. The study concludes that there are no fatal flaws. A
number of library alternatives are presented below and described in more detail in the attached consultant's
report. Each of the withdrawal options examined by Arroyo &Assoc. includes the budgeting of funds to
replace administrative services the Concord branch library currently receives from the County Library
System. The five options include:
Scenario#1 - City of Concord Library with CCC Library Service Levels
The City withdraws from the County Library System and operates the existing branch facility at the
current 42 hour per week service level. This option assumes all other current deficient levels of service
are maintained. The City could implement this option and save approximately$100,000 annually from
what is currently expended for the existing branch library. It should be noted, however, that th.
$100,000 savings could be used to fund an additional 10 hours of service for 52-hours total, which
City of Concord Library Study
January 28, 1997
Page 3
would allow expanded Saturday and Sunday'hours. This scenario does not include a payment by the
City to the County for existing books and materials. The study estimates a one-time cost of$150,000
to$300,000 for these materials if negotiation with the County is required.
Scenario#2- City of Concord Library with Expanded Hours and Materials Budget
The City could withdraw from the County Library System and by spending an additional$96,000 per
year offer significantly enhanced library services. Hours of operation could be increase to 52 hours per
week from 42 hours per week and the book and material replacement budget could be increased at least
36% over current levels.
Scenario#3 - City of Concord Library with Expanded Facility and Materials Budget
Under this option the City could substantially increase the size of the existing library. The cost of this .
expansion is estimated at approximately $3 million. Operating costs for this scenario would be
$100,000 per year more than Scenario#2. The books and materials budget would be expanded at least
36% over present levels under this option but the hours of operation are calculated at the current 42
hour per week level.
Scenario#4 - City of Concord Library with Expanded Facility,Hours,and Materials Budget
This option improves on Scenario #3 by increasing hours of operation to 52 hours per week and
increasing the books and materials budget to 130% of the present County operated system. The
additional annual cost over that quoted in Scenario#3 is$174,000 per year.
Scenario#5 -Joint Concord/Clayton Library with Expanded Hours and Materials Budget
..This option expands scenario#4-by proposing the City of Concord and City of Clayton join together
to provide library services. The cost of this system would be $540,000 per year above current
expenditures by the City of Concord and City of Clayton for library services. This option includes
increasing the square footage of the Concord library,expanding the books and materials budget at the
Concord and Clayton Libraries,and expanding hours of operation at the Concord Library to 52 hours
per week.
Please note that the above scenarios are for illustrative purposes only. A number of alternatives exist
for providing various services at various levels of funding. This can be decided in the future should the City
Council wish to proceed with a "go it alone' alternative. Each alternative examined by Arroyo and
Associates includes the possibility of partnering with the Cal State Hayward - Contra Costa Campus to
incorporate its existing 6,000 square feet Technology library into a City of Concord or joint-city library
system. Discussions with Cal State Hayward have been initiated regarding a City/Cal State Hayward -
Contra Costa Campus partnership. Cal State Hayward representatives view such a partnership as
complimentary to their role as a public service agency in Contra Costa County. The expanded hours of the
Cal State Hayward Technology Library and the collections they access would be highly beneficial to the
Concord business community and other library users.
City of Concord Library Study
January 28, 1997
Page 4
As noted in the Executive Summary, City residents would maintain access to the County Library
System under each of the five withdrawal scenarios examined Arroyo&Associates state,
"it is important to note that the City's withdrawal from the County's system does not prohibit Concord
residents from utilizing Contra Costa County library services and facilities. Conversely,Contra Costa
County patrons wishing to use the City of Concord's library facility and services must be provided
access. Included in our analysis is the assumption and corresponding financial payment to the County
for the City's continued use and access to the CARL computer system'.
The Concord Library Study estimates the"return to source" deficit in Concord at$319,000 per year.
The City contributes $1,080,249 annually to the County Library System but receives back only$761,722
in service. These figures do not fully-describe the`return to source"problem because the services Concord
receives are deficient when compared to countywide averages. For example, circulation per capita in
Concord is 39%below the average for the County Library System. This is happening Arroyo&Associates
state because,"the-holdings per capita-(in Concord)are low". Arroyo goes on to state, "there is low library
attendance because the hours of operation and facility size per capita are low", "there is low reference per
capita because the volumes,facilities, and hours are low". Arroyo notes these conditions are not the result
of less interest in library services by Concord residents, "the.output measures in which performance level.
is high,circulations per hour and circulations per item(turnover rate), indicate that the residents of the City
of Concord are fully using what they have".
In light of the historical under-provision of library services to the City of Concord by the Counr
Library System, there is no basis to project that additional funding provided by the present revenue
distribution formula would correct these problems. Only return to source of funds generated within Concord
combined with local governance of the library system will correct these problems.
The model and deal points being recommended by the PMA allow for all future property tax growth
and any additional funding.derived-from any taxing mechanism approved by the voters to return.100% to
source. The significance of this is illustrated by the following example. A$15 parcel tax in Concord would
generate approximately$540,000. This was the same level of parcel tax which did not receive the required
2/3 vote in 1994. A $10 parcel tax would generate approximately $360,000. .The PMA believes.a tax
initiative that returns revenues 100% to source has a far better chance of passing than one that does not. A
$10 parcel tax would be ample to implement Scenarios 3 and 4. A slightly higher parcel tax would be
required to implement Scenario 5.
All the scenarios are based upon the premise that the City could withdraw from the Countywide library
system and take with it all property taxes presently going to the County. The Education Code provides a
means to withdraw from the County Free Library System. The Code is clear that when an agency withdraws,
the property taxes cease to be collected. In other words,withdrawal alone does not give a city or county the
right to the funds. It appears that the only way for an agency that withdraws from the system to gain all or
a portion of the taxes is to negotiate some form of deal with their county, as provided in the Revenue and
Taxation Code.
Some have said that the Education Code must be amended to clarify how the property taxes from
withdrawing city are handled. Efforts to revise the Code have been unsuccessful to date, with the exception
City of Concord Library Study
January 28, 1997
Page 5
of Los Angeles County that had special legislation adopted last year that would allow any city withdraw.
ing
from their County system to take 100% of the taxes generated from their City. There may, however, be
another approach to take to secure the level of funding the prior property tax may have provided from a city
that may choose to withdraw without a legislative change.
One.means to accomplish this could be handled in the following manner. A ballot issue could be
brought forward which asks the voters of a city if they would be willing to withdraw.from the County
System,have their property taxes reduced,but then replaced with an equal, alternative funding mechanism
that would produce the same revenue as the former property tax,as long as this were to increase the size of
their existing library, and improve delivery of services. A two-thirds vote.would be required to be
successful. The tax burden on each parcel would not be changed; however, the funds would no longer be
dedicated to the County Library System. If the measure were to fail, then the current services under the
County System would continue. ,
The-above approach would seem to eliminate-the need to change the.Education Code or negotiate an
acceptable deal with the County. This is only an approach, and before given further consideration it should
be subject to legal review to.assure its feasibility. A future legislative change similar to the one in LA
County described above may be possible in the future-as many cities in numerous counties in California are.
growing more and more dissatisfied with their library services.
Staff continues to-believe that the best alternative for improving current library services (considering
all issues and complexities) is the one being recommended by the PMA. It addresses the issues of local
control, and return to source, while enhancing the chances for increased funding. And just as importantly,
it preserves the Countywide system. If the PMA model fails to achieve the necessary approvals from the
cities and County,a number of cities will be pursuing different governance structures such as a"go it alone"-
alternative or forming alliances with other agencies with similar interests.
Fiscal Impact
There is no fiscal impact on the City to hear and accept the findings of the study. The five options for .
library service detailed in the study represent a range of cost savings of approximately$100,000 per year to
an additional operating expense of $540,000 per year not including capital costs for library facilities
expansion.
Public Contact
Posting of the agenda. Copies of this report have been distributed to the City's former Library Task
Force members, the County Librarian, the branch libraries, and the City's representatives on the County
Library Commission.
City of Concord Library Study
January 28, 1997
Page 6
Recommendation for Action
Accept the report thereby preserving options for a Concord municipal library.
ward R. James Peter Dragovich
City Manager Senior Administrative Analyst
Enclosures: Exhibit A Public Manager's Association memorandum datedWovember 7, 1996 .
Exhibit B library Feasibility Study for the City of Concord by Arroyo&Associate.,
Executive Summary
GO-rr.PD
Exhibit A
PUBLIC MANAGERS'ASSOCATION OF CONTRA COSTA COUNTY
November 7, 1996
TO: MAYORS' CONFERENCE
BOARD OF SUPERVISORS
FROM: PUBLIC MANAGERS' ASSOCIATION
SUBJECT: LIBRARY STUDY
We aro pleased to transmit r000mmcadations on library service in Contra Costa County. As you
know,the Association retained David M.Griffith and Assooiates to assist us in this effort. A
summary of the recommendations are outlined below. The report of the oonsultant supporting
these recommendations will be forthcoming within the next 30 days.
This has not ban an easy task 'There are a myriad of interests that had to be considered. No one
got everything that was wanted. What is advanced rcproscats the views most of our membership.
It is what we believe to be doable now. It reprrsents first steps,not an end. Our goal has been to
deal with all interests,not reduce library service,provide for a foundation ofsupport for future
funding of library services, and to achieve as much consensus-as possible.
Clearly,even with what is suggested,the library service in this County is under funded. New
governance structures,new financing models,changed work rales and the more lberal use of
volunteers will not make the library service what it should be. if the recommendations are
implerncntcd and that is all that is done, library service will not likely improve. 1t will require
more money to do what we all believe should be done. Libraries should have more resources and
be available to the public more hours.
To get more money,libraries must have support. To gain wide spread support,there must first
be enthusiastic support from all the cities. With all that the PMA recommends along with
looking at more creative approaches to service delivery, focusing on serving the public and
using more volunteers,where appropriate,we will have gone a long way to secure public support
and confidence that will be necessary to generate additional resourocs.
Major conclusions and recommendations are as follows:
• The County Library, governed by the Board of Supervisors, will remain in place for the
delivery of library services in the County. The County shall provide central library
services(purchasing, administration, information systems, labor relations, and general
Mayors'Conference -
Board of Supervisors
TAbrary Study `
November 7, 1996
Page 2
managcrucnt)for all libraries. Additionally the County shall provide services to
subregions within the County pursuant to decisions made by Subregional La-brary
Councils. -
• rive Subregional Counoils are proposed to be created within the System. Bach
Subrogional Council,made up of representatives of the cities and the county within that
area,would have the responsibility of allocating property tax and other library revenue
receipts within the region,determining levels of library service and hours of operations.
• P.ach Subrogional Council would appoint one representative(and the Board of
Supervisors would appoint one member)to the County Library Commission replacing the
existing one. This Commission would have authority to recommend to the Board of
Supervisors the budget and allocation of funds for central library services and staffing;
reemmending policies and procedures related to il'br�ryoperations;.and nominating
candidates for final consideration for Library Director. This Commission would also be
charged with recommending the appropriate level of central services to the Board of
Supervisors and the Subregional Councils. A technical advisory committee consisting of
one city manager from each of the five regions and the County Administrator may be
appointed by the Subregional Councils.
• In establishing the new system,there is guaranteed funding to continue the hours of
branch library service that currently exist within the County igespeetive of property tax
generated.This ,in effect,keeps everybody whole. 'In recognition of the importamee of.
the"return to source"concept,however, all new arid other property tax revenue and other
library revenue generated within subregions of the County shall remain in that area for
allocation as determined by the Subregional Councils.
• Subic ponal Councils are also the forum thmugli which decisions are made regarding'
incrCabW funding. Any increased funding shall be retained within the subregion.
• The Central Library located in Pleasant Hill currently operates above the branch level of
service and hours as a result of housing a centralized collection and providing centralized
public rervices. Under the new system,the centralized collootion and public services
provided at the Central Library will be restructured or relocated to other libraries within
the County during a transition period. As long as the Pleasant Fill facility retains some
Of the centralized collections or public services, it will continue to operate at a level
above the avcragc branch level of service and hours.
• Contra Costa County, from funds other than those designated for libraries, shall
Mayors, Confercnco
Board of Supervisors
Library Study
November 7, 1996
Page 3
contribute$IS million toward tho consttuotion of expanded library facilities in Concord.
The City of Concord shall contribute at least$1.5 million toward such a project, _
• The Business Library now housed in the Central Library shall be relocated to Concord.
• When the City of Hercules constructs and makes ready for occupancy a library facility in
that City, funding shall make available for operation of this new branch equal to the
average cost of 29 hours of service per week in West County full service branch facilities.
This amount shall be generated by having each of the full-service branches contribute
equally to the base level of funding for that branch. Funds shag be taken"off the top,,
before allocations ane made to the subrcgional councils. Once established, the funding
for Hercules shall increased only as determined by the West SubrgOonal Council from
funds available and generated in the West subregion.
• After approval of this proposal by the Board of Supervisors and a majority of the cities
representing a majority of the population(exclusive of Richmond)the new plan shall
become operative on July 1, 1997. There will be a two-four year transition period to fully
implement the new system.
•
In approving this new govemancc and financing arrangement,the County does hereby
agree that should a'subregion withdraw from the system pursuant to provisions of a
performance contract, the County consents to transferring all property tax within that
region to the Subregional entity.
• Building occupancy costs shall not exceed the actual cost of providing service.
• All current library staff will remain employed. Any staff changes related to the transition
to the new system will be attempted to be brought about by attrition. Accordingly, it is
recommended that vacant positions not be filled or be filled only on a temporary basis
until permanent staffing needs for the new system are determined.
The PMA also recommends the following timeline:
November- January--The Board of Supervisors and each of the affected cities within the
County take action upon the proposal and aplxiint representatives to the respective Subregional
Councils.
Mayors' Confcicnao
Board of Supervisors
Ubrary Study
November 7, 1996
Page 4
February—Subregional councils convene for the purpose of organization and appoint its _.
representatives to the County Ia'bmry Commission. The Board of Supavisara makes its
appointment. -
March—Library Commission meetings are held for the purpose of appointing its technical
advisory committee and for identifying transition issues.
April—Library Commission makes reeommedations to the Board of Supervisors and the
Subregion!Councils on central library services for fiscal 1997-98
March—May—Subregional Councils decide finding arrangements, service levels,and hours or
operation.
July 1, 1.997—New System Launched
Ibis proposal will be reviewed by the City-County Relations Committee at its meeting of
November 6. An update of its reaction will be presented at the meeting of the Mayaer,
Conference on November 7.
Exhibit B
Z EXECUTIVE SUMMARY
The Concord branch library facility was opened in 1959. This 12,600 sq. ft.
facility was intended to serve a community of approximately 36,000
residents. At that time,the County's branch library facility was inkeeping
with generally accepted and recommended professional standards
relating to available public library facilities in communities.
As shown in Figure
I-1, however, 120,000
during the past 30
years since the loo,0oa
current library 80,000
facility was. opened
, Ages
60,000.. u
the City of Concord "4 YM 0-19
: 20-64
has undergone 40,000.. :< ::
significant growth 20,000
in its residential
population and o >.....:...: ;; :.: <.:;::. :.... .
changes in the size 1960 1970 1980 1990
and makeup of the
's business Figure 1-1
City's Concord Population
community.
Today, Concord, with a population of approximately 114,000, is the
largest city in Contra Costa County. Moreover, the City is a major
commercial and employment center for not only the County but the Bay
area region as well.
During this extended period of growth and change in the City, the Contra
Costa County Public Library system also underwent considerable growth
and change in its operation and financing structure. Unfortunately, our
analysis noted that the County has been unable to keep pace and meet the
changing needs of library and information services for the City of
Concord.
Thus, today, by any measure, the current service levels provided by the
Contra Costa Library system are substantially below those provided by
other urban County library systems in the State. More important, when
compared with those provided in other comparable communities with
municipally operated Library systems, the level of library services
afforded residents in the City of Concord falls even further behind. Our
City of Concord Library 1 Arroyo Associates,Inc.
analysis indicates that the County spends approximately$11.98 per capita
systemwide for library services. This is approximately 25% below the
statewide average for urban counties serving populations greater than
500,000. More important to the residents of Concord, however, the
County's per-capita expenditure for Concord residents is $6.65, which is
44% below the countywide per capita average. Moreover, comparable
communities in the State providing their own library services currently
spend, on average, approximately three times the amount spent by the
County in providing library services in Concord.
Our analysis noted, based on the population served juxtaposed to a
number of performance measures,including but not limited to, the size of
facilities, number of library books and materials, hours of operation, and
circulation, the Concord Branch Library ranked below the median in
comparison to other County branch libraries. More important,when these
same performance measures are used in comparison to 28 comparable
municipal operated libraries, the City of Concord's branch library ranks
last by a significant margin.
However, despite the low funding and the attendant levels of library
services, our study noted that the City's branch library has a high degree
of usage during the periods when it is open. Moreover, it appears that
usage would increase should the hours and levels of service be improved
to better match the community's needs.
In a post-Proposition 13 and 218 environment, the opportunities available
to the City for improving .library services, particularly given the
magnitude of the current service-level deficiencies inherent in the
County's system, are limited and present 'unique challenges. Because of
the technological innovations and the changing nature and role of the
public library services, however, now is an opportune time for the City to
make needed changes in order to improve its library services. The key to
successfully accomplishing this transformation would require the City to
decisively define its roles, services, and responsibilities that are essential
prerequisites for an effective public library in the 21st Century. The City
must accept the fact it will be very difficult to ever compare favorably
with the older more established libraries operated by other comparable
cities in California and whose collections are well established and funded.
This is not to say that the City cannot provide quality public library
services and compare favorably with its peers. On the contrary, with the
existence of the California State University at Contra Costa Campus
library facility, the City has a unique asset upon which to formulate an
entire strategy for library service delivery. That strategy is centered upon
technology and those service delivery criteria that will define a quality
public library in the 21st Century. This is a niche market that the City can
City of Concord Library 2 Arroyo Associates,Inc.
develop with its limited resources and serve, not only the residents of
Concord,but the business community as well.
Our analysis indicates that the County currently collects $1,080,249 to
provide library services in Concord, but .spends only $761,722 in
providing these services. Approximately$319,000 or 29% of the revenues
collected by the County to provide library service in Concord* is
transferred to support the delivery of service in other County libraries
outside of Concord. Property tax is the primary revenue source, and is
supplemented by State funds,grants,and monies from local fines and fees
to provide library services. .Assuming that the City is able to receive all of
the Property Tax monies currently collected by the-County, our analysis
indicates that, under a number of scenarios, the City could maintain and
even achieve a higher level of service in a more cost-effective manner.
As summarized in Exhibit I-1, our analysis of various scenarios indicates
the following.
Scenario #I— City of Concord Ls'braM with CCC Li'braru Service Levels
City could withdraw from the County system and operate the
current branch library facility, maintain the current 42 hour per
week service level, but modify that schedule to permit Sunday and
weekday night coverage, and save approximately $100,000
annually. Although the modified schedule would enhance the
community service, the library service levels would still be
deficient.
Scenario #II — City of Concord Library--with Expanded Hours and
MatMai Budget
For approximately$100,000 more per year,however,the City could
significantly increase the library's service levels currently being
provided by the County. This would be accomplished by
expanding hours of service to 52 hours per week including
weekday nights and weekends, and increasing the book and
material-replacement budget 36%. These two services are the most
critical for users of library services,based on industry literature and
confirmed by the County's recent user survey. The library facility,
however, which is grossly inadequate for the community, would
continue to remain unchanged.,
City of Concord Library 3 Arroyo Associates,Inc.
Scenario #III — City of Concord E:rva,��dedf Librart with CCCL Service
Ievils -_
The City would need approximately$100,000 more annually just to
operate an expanded (28,000 sq. ft.) Library facility. It is important
to note that the expanded facility would still be approximately one-
half the library space recommended. for a community the size of
Concord. Under this scenario of an expanded facility,however, the
City would continue providing 42 hours of service per week and to.
maintain a limited book and materials budget.
Scenario #IV— Cify of Cgitcord Library Expanded Facility and Hours of
O er�atio_n
The City would need approximately $375,000 more annually to
operate an expanded facility,and increase other service levels at the
library, including a 130% increase in the book replacement budget
and expand to 52 hours per week of service.
Scenario #V —City of Concord-Clayfan L:`blrary Service
It would cost the City approximately $540,000 more annually to
operate an expanded library facility and join with Clayton in
operating a joint public library system.
Based on our analysis, as discussed above, it is feasible for the City to
withdraw from the County system and deliver its own library services
with the proviso that it continue to participate in the County's circulation
system. Under either of the five above-mentioned scenarios, the levels of
library services afforded the Community will be superior to that currently
being provided by the County. The City's first step should be to expand
the hours of service and material-replacement budget, and focus on
improving the quality of the library's collection. The quantity will always
be limited by the size of the facility; however, that does not prevent the
City from having highly desirable and much-sought-after library.
It is important to note that the City's withdrawal from the County's
system does not prohibit Concord residents from utilizing Contra Costa
County library services and facilities. Conversely, Contra Costa County
patrons wishing to use the City of Concord's library facility and services
must be provided access. Included in our analysis is the assumption and
corresponding financial payment to the County for the City continued use
and access to CARL computer system. The specific terms and conditions
governing such usage would be subject to negotiation between City and
County.
City of Concord Library 4 Arroyo Associates,Inc.
L
In addition, the City should explore the possibility of entering into an
agreement with the California State University-Contra Costa Campus to
serve as the City's library technology and business center. This would be
consistent with both agencies' mission to serve the community in a
defined and focused manner and maximize the use of the existing library
facilities,available technologies,database,and internet systems.
Simultaneously with expanding the Library's services level, the City
should seek to expand the role of the Friends and other support
organizations (Foundations, Corporations, etc.) that could provide
supplemental resources to the City's Library. Most assuredly, the
expanded hours of operation and improvements in the collection and
services would increase the public's participation and use of the public
library. The increase in usage would enhance the community's
recognition of the value of this institution and the various"issues that must
be addressed, including the inadequacies of the existing facilities. This
public recognition is the prerequisite for the City's efforts to enhance, in
the long term, the City's library services. It is.to be hoped that improved
services will create a demand for,and with it resources for, the City's new
facilities.
City of Concord library 5 Arroyo Associates,Inc.
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JOINT EXERCISE OF POWERS AGREEMENT
BETWEEN
THE COUNTY OF CONTRA COSTA
AND
THE CITY OF CONCORD
1. Parties: Effective October 28 , 1997, the COUNTY OF CONTRA COSTA, apolitical
subdivision of the State of California, hereinafter referred to as "County," and the City of Concord, a
municipal corporation of the State of California, hereinafter referred to as "City," pursuant to Government
Code section 6500 and following, agree as follows.
2. Purpose and Scope: The purpose of this Joint Exercise of Powers Agreement, hereinafter referred to as
"this Agreement," is to provide a program for cooperation between County and City regarding certain
aspects of the library facility located in City, hereinafter referred to as "the Library Facility,"that is part of
County's library system. Specifically, City is to renovate and expand the Library Facility, hereinafter
referred to as "the Project," and County shall contribute up to $1,500,000 to the Project and provide
$170,000 a year as adjusted in additional operating funds for the Library Facility after the Project is
accepted as complete by the City for so long as the Library Facility remains a part of County's library
system, as specified in section 4 of this Agreement.
3. Method:
(a) County shall perform the following activities:
1
1. Review and approve the plans and specifications for the Project as well as the bid documents
prior to advertisement of all contracts, including the construction contract(s);
2. Consult with City, as necessary, to enable the Project to be promptly and properly completed;
3. Perform a joint final inspection of the Project with City;
4. Pay City only the cost up to $1,500,000, as specified in section 4 of this Agreement, of the actual
design, engineering, surveys, materials testing, and construction of as, well as for fixtures, furniture,
and equipment for,the Project; and
5. Fund $170,000 a year as adjusted in additional operating funds for the Library Facility after the
Project is accepted as complete by City for so long as the Library Facility remains a part of
County's library system, as specified in section 4 of this Agreement, with these additional operating
funds to be used to expand hours and/or services at the Library Facility, as determined by City.
(b) City shall perform the following activities:
1. Prepare, or have prepared, the plans and specifications and the bid documents for the
Project;
2. Perform, either by itself or through a consultant, all design, engineering, surveys,
materials testing, contract administration, and inspection of the Project, with the exception of
the final inspection, which is to be performed jointly with County;
3. Obtain environmental clearance for the Project pursuant to the California Environmental Quality
Act and secure all permits to complete construction of the Project, as necessary;
4. Advertise the Project for public bid and award all contracts, including the construction
2
contracts(s);
5. Consult with County on any necessary changed or extra work prior to the issuance of any
contract change orders for the Project;
6. Consult with County, through the County Librarian, at all stages of the Project from initial
design through completion of construction so that the County Librarian can provide input to City
regarding the Project;
7. Accept the Project as complete but not until County has determined that the Project has
been completed to its satisfaction;
8. Maintain Project records and document Project expenses;
9. Prepare and submit to County timely reports of Project receipts and disbursements;
10. Bill County only for the cost of the actual design, engineering, surveys, materials
testing, and construction of, as well as for fixtures, furniture, and equipment for, the Project;
11. Directly pay all costs for the Project, as specified in section 4 of this
Agreement, of the actual design, engineering, surveys, materials testing, and construction of, as well
as for fixtures, furniture, and equipment for, the Project but with County reimbursement of only
one-half of all costs up to $1,500,000 as specified in section 4 of this Agreement; and
12. Provide County with two copies of as-built plans before the Project is accepted as complete by
City.
4. Financial Responsibilities:
(a) County shall pay City only for the cost of the actual design, engineering, surveys, materials
3
l 1 y
testing, and construction of as,well as for fixtures, furniture, and equipment for, the Project,which cost
shall not exceed $1,500,000 and which cost shall be matched by City dollar for dollar such that, if the total
cost of the Project is, for example, $2,000,000, County shall pay $1,000,000 and City shall pay $1,000,000
or, if the total cost of the Project is, for example, $4,000,000, County shall pay$1,500,000 and City shall
pay $2,500,000. The up to $1,500,000 payment from County shall be disbursed to City as follows: 50
percent within 10 days of the execution of the construction contract or, if there is more than one
construction contract, within 10 days of the execution of the final construction contract and 50 percent
within 30 days of County's receipt of City's final report of Project receipts and disbursements. If the cost
of the Project is less than $3,000,000, City shall refund to County, within 60 days of the date the Project is
accepted as complete by City an amount necessary so that County's total payment to City is one-half of the
cost of the Project; if such refund is not made by City to County, County, at its discretion, may offset the
refund due against the $170,000 a year as adjusted in additional operating funds until such refund is
complete.
(b) County will fund $170,000 a year as adjusted in additional operating funds for the Library
Facility after the Project is accepted as complete by City for so long as the Library Facility remains a part of
County's library system, with these additional operating funds to be used to expand hours and/or service at
the Library Facility, as determined by City. The first payment of these additional operating funds shall be
provided by County within 60 days after the Project is accepted as complete by City,with the amount
County will pay in the first fiscal year prorated based upon the number of days between the date the Project
was accepted as complete by City and June 30 of that fiscal year. The $170,000 shall then be adjusted at
the end of each fiscal year for the following fiscal year for as long as the Library Facility remains a part of
County's library system, with each adjustment calculated as provided for in Revenue and Taxation Code
4
a
section 51 (a) (1) (B).
(c) Both the up to $1,500,000 payment by County to City and the $170,000 a year as adjusted in
additional operating funds shall come from funds other than those designated as of the effective date of this
Agreement for non-capital library operations and other than those that might be provided through future
ballot measures.
(d) If the Library Facility is withdrawn by City from County's library system utilization within five
years of the date of acceptance of the Library Facility by City, City shall return to County all the up to
$1,500,000 paid to City, with interest computed to the date of refund at the average rate of return on funds
invested by the Treasurer-Tax Collector. If the Library Facility is withdrawn by City from County's library
system after five years but less than eleven years after the date of the acceptance of the Library Facility by
City, City shall return to County a portion of the up to $1,500,000 paid to City, with interest computed to
the date of refund at the average rate of return on funds invested by the Treasurer-Tax Collector, as follows:
85 percent if the date of withdrawal is in the sixth year, 65 percent if the date of withdrawal is in the
seventh year, 45 percent if the date of withdrawal is in the eight year, 25 percent if the date of withdrawal is
in the ninth year, and 10 percent if the date of withdrawal is in the tenth year.
5. Insurance and Indemnification:
(a) All contract documents for the Project shall include provisions requiring all contractors,
including the construction contractor(s), to provide all necessary payment and performance bonds as well as
insurance coverage, with indemnification clauses naming County and its officers and employees to the
5
same extent as City and its officers and employees and shall require the contractor(s) to provide to City a
guarantee against defects in materials and workmanship for a period of at least one year from the date of
acceptance of the Project by City.
(b) Neither County, nor any officer or employee thereof, shall be responsible for any liability
occurring by reason of anything done or omitted to be done by City in connection with any responsibility
delegated to City under this Agreement to the extent not covered by the above-described bonds and
insurance. City shall defend, indemnify, save, and hold harmless County and its officers and employees
for any and all claims, demands, suits, costs, expenses, and liability for any damages, injury, sickness, or
death, including for attorneys' fees and costs, occurring by reason of anything done or omitted to be done
by City in connection with any responsibility delegated to City under this Agreement, except as provided
otherwise in section 5 (c) of this Agreement.
(c) County acknowledges that entry into the construction area carries with it a certain risk and agrees
to release and hold harmless City and its officers and employees from any liability for death of, or injury to,
County's representative(s)while present in the construction area, except for liability resulting from the sole
negligence or sole willful misconduct of City or its officers, employees, or agents.
(d) Nothing in this Agreement is intended to affect the legal liability of either party to third parties
by imposing any standard of care different from that normally imposed by law.
6. Acceptance:
(a) Upon completion of the Project, County and City shall conduct a joint final inspection. After
County and City have determined that the Project has been completed to both parties' satisfaction, City
6
shall accept the Project.
(b) Upon acceptance of the Project, City shall own the Project and shall defend, indemnify, save,
and hold harmless County and its officers and employees against any and all claims, demands, suits, costs,
expenses, and liability for any damages, injury, sickness, or death, including for attorneys' fees and costs,
occurring after acceptance and relating to the design, engineering, surveys, materials testing, and
construction of the Project as well as, if the Library Facility is withdrawn by City from County's library
system, relating to the use and operation of the Project, except for liability resulting from the sole
negligence or sole willful misconduct of County.
(c) It is understood and agreed by County and City that a separate facilities agreement will be
entered into by County and City prior to the award of the construction contract(s) of the same or similar
kind as those currently existing with other cities (e.g., San Ramon, Danville, etc.). It is further understood
and agreed by County and City that County's annual share of operating cost to be set forth in such facilities
agreement shall be limited to the amount budgeted by County for the Library Facility in the last fiscal year
that the Library Facility was open and in operation prior to the date the Project was accepted as complete by
City and that the $170,000 a year as adjusted in additional operating expenses shall not be included in any
way in such facilities agreement.
7. Restrictions: Pursuant to Government Code section 6509, the powers of both parties under this
Agreement shall be subject to the restrictions of such powers applicable to County.
8. Accountability: As required by Government Code section 6505, both parties to this Agreement shall
7
provide strict accountability of all funds received and disbursed for the Project.
9. Modification: This Agreement shall be subject to modification only by the written consent of both
parties.
10. Termination: Unless terminated earlier by the written consent of both parties, this Agreement shall
terminate upon County's final payment to City or City's reimbursement to County, whichever applies .
However, the provisions of sections 4(b), 4(d), 5(b), and 6(b), of this Agreement shall survive any
termination of this Agreement.
11. Entire Agreement: This Agreement contains the entire understanding of both parties relating to the
subject matter of this Agreement. Any representation or promise of either party relating to the Project shall
not be enforceable unless it is contained in this Agreement or in a subsequent written modification of this
Agreement executed by both parties.
8
COUNTY OF CONTRA COSTA CITY OF CONCORD
By: �� By:
Chair,Board of Supervisors City Manage
ATTEST: ATTEST:
Phil Batchelor, Clerk of the City Clerk-Deputy
Board of Supervisors and
County Administrator
By: By:
Deputy
RECOMMENDED FOR APPROVAL:
Anne Marie Gold
County Librarian
By: 1t��
FORM APPROVED: FORM APPROVED:
Victor J. Westman
County Counsel CAtto ey
/ �_
By: By: .
Deputy I( 125
H:\DPFIS\PSA\LTR56.WPD
9
A a
FINANCE DIRECTOR'S CERTIFIC TION:
CONCORD, CA. DATE: p 1997
I HEREBY CERTIFY THAT ADEQUATE FUNDS EXIST OR WILL BE
RECEIVED DURING THE CURRENT FISCAL YEAR 1997/98 TO PAY THE
ANTICIPATED EXPENSES TO BE INCURRED PURSUANT TO T141S
CONTRACT.
TO WIT: THE SUM OF— 4 / 5A,
$ S 0
FINA CEIRECT 'S SIGNATURE
Budget Code ("�LJ �J (
Request to Speak Form
( THREE (3) MINUTE LIMIT)
Complete this form and place it in the box near the speakers' rostrum
before addressing the Board.
ja b4l e-> !tone: ( 71 3156
Address: f 15-a PqY,- k- sI c(,,�,- may; Co c 0 P
1 am speaking for myself or organization: C l o y
Own of organEutioN
CHECK ONE:
I wish to speak on Agenda Item #6•= Oates 12/ ��
My commwits will be: general j::jor._against .
_.�. 1 wish to speak on the subject of
1 do not wish to speak but leave these comments for the Board
to consider.
'r r
SPEAKERS.
I . Deposit the "Request to Speak" form (on the reverse
side) in the box next to the speaker' s microphone
before your agenda item is to be considered.
2 . You will be called on to make your presentation.
Please speak into the microphone at the podium.
3 . Begin by stating your name and address and whether
you are speaking for yourself or as the
representative of an organization.
4 . Give the Clerk a copy of your presentation or
support documentation if available before speaking.
S . ,Limit your presentation to three minutes . Avoid
repeating comments made by previous speakers . (The
Chair may limit length of presentations so all
persons may be heard) .
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(THREE (3) MINUTE LIMIT)
Complete this form and place it in the box rear the speakers'
before addressing the Board.
i
Name. -
• for f or A.W. C� WRA 011A
i am speaking mysel ______ ,
Omm of NNW
CHECK ONE: !
x 1 wish to speak on Agenda !tern #�� 16 p� ,.1.2- z-/1'7
'7.—
My coiewmits will be: general �for.J*9�4,._.�._..•
1 wish to Weak on the abject
1 do not wish to speak but leave these for the Board
to tier