HomeMy WebLinkAboutMINUTES - 06251985 - 2.4 TO: BOARD OF SUPERVISORS
Phil Batchelor, County Administrator Contra
FRO M: Costa
DATE: June 19, 1985 County
SUBJECT: Fire District Personnel and Capital Needs/Five Year Plans
SPECIFIC REQUEST(S) OR RECOMMENDATION(S) & BACKGROUND AND JUSTIFICATION
i . RECO101ENDATION:
Approve the implementation of the fire district five year plans and the
development: of specific funding proposals on a district-by-district basis
and authorize the County Administrator to seek the assistance and coopera-
tion of the cities of the county in meeting fire service needs .
II . FINANCIAL IMPACT:
Implementation of the five year plans at the levels recommended by the
County Administrator will result in an additional cost of approximately
$31, 693 , 000 over the next five years beginning with fiscal year 1985-1986
and ending with fiscal year 1989-1990.
III . BACKGROUND:
Earlier this Year your Board directed this, office to conduct a study of
each county fire protection district to determine personnel and capital
needs over the next five years. Accordingly, the fire districts were
requested -to submit five year plans based upon expected population and call
for service increases. implementation of the plans would enable the
districts "to continue to provide basic fire district functions. The plans
were to deal only with the expansion of service, that is, acquisition of
station sites , construction of new stations, relocation of existing sta-
tions and the provision of staffing and equipment to operate new stations
or increase the service capabilities of existing stations. The scope of
the study was also to include the identification of potential revenue
sources other than the Special District Augmentation Fund to fund the needs
of each district. The Special District Augmentation Fund has been excluded
as a potential revenue source for this purpose inasmuch as the fund has
proven to be inadequate to meet the ongoing needs of the districts.
The purpose of ,developing the five year plans was to identify the magnitude
of the unmet fire service needs of the county fire protection districts.
In recognition of the inadequacy of the Special District Augmentation Fund
to provide for the needs of the fire districts , it was also the purpose, of
the five year plan development to identify potential revenue sources to
finance the needs of the districts.
This office, in conjunction with the fire districts, developed a five year
plan format and instructions which were distributed to the county fire
protection districts . With the exception of Byron, West County, Oakley and
Pinole , all county fire districts have submitted five year plans in the
requested format. Byron Fire Protection District submitted a letter which
CONTINUED ON ATTACHMENT: X YES SIGNATURE:
RECOMMENDATION OF COUNTY ADMINISTRATOR RECOMMENDATION OF BOARD COMMITTEE
APPROVE OTHER
SIGNATURE(S)
ACTION OF BOARD ON
DON June 25, 1985. ----• APPROVED AS RECOMMENDED OTHER X
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ACKNOWLEDGED receipt and REFERRED report to the Internal Operations Committee and the Finance Committee for
review in the areas of operation and management as well as fiscal implications; DIRECTED the County Administrator
to begin negotiations with the cities for a fire fee or one-time development fee to provide revenue for fire
facilities; and AUTHORIZED the County Administrator to contract for the services of a consultant knowledgeable in
the area of fire services to assist in the development of the five-year plan.
VOTE OF SUPERVISORS
—_X UNANIMOUS (ABSENT I ) I HEREBY CERTIFY THAT THIS IS A TRUE
AYES: _ __ NOES: AND CORRECT COPY OF AN ACTION TAKEN
ABSENT: ABSTAIN: _ AND ENTERED ON THE MINUTES OF THE BOARD
Internal Operations, Finance Ctes OF SUPERVISORS ON THE DATE SHOWN.
County Fire Districts aS /9g�
CC: ATTESTED _
Independent Fire Districts hi! Batchelor, Clerk of the Board of
Cities Supervisors and County Administrator
Auditor-Controller
County Counsel
M ae2l7•a5 LA CO BY . DEPUTY
Pl.anninq
outlined goals of the district and indicated that an indepth study would be
provided by October 1, 1985 . The Oakley Board of Fire Commissioners has
appointed a committee to develop a five year plan which will be submitted
at some time in the near future. West County and Pinole have indicated
that they will respond in letter form in a more general nature regarding
the needs of their districts. Presented below is a summary of the needs of
the districts as requested by the districts in the five year plans and
revised by this office as discussed in the report:
NEEDS IDENTIFIED IN FIVE YEAR PLANS
FIRE DISTRICT STAFF FACILITIES SITES COST
Contra Costa County 99 11 11 $ 25 ,392,000
(Consolidated)
Riverview 11 8 5 6,685,000
Moraga 4 1 1 1, 240,000
Bethel Island 7 2 1 1 , 515 , 000
Brentwood 1 3 2 1, 397,000
Tassajara 0 1 1 443 , 000
Orinda 6 0 0 1,012,500
Eastern 1 1 0 337 ,000
(A)
i29 27 21 $38 , 021, 500
(A) Based on current costs with no projection for inflation.
As a comparison' to the above requested staff and facility additions, the
named districts currently have a combined staff of 422 , 37 facilities and 4
sites. The combined fiscal year 1984-1985 budgets of the districts,
including allocations for capital expenditures amount to
approximately $24 , 000 , 000.
The summary above includes only those items that met the five year plan
criteria. Items related to the replacement, repair or modification of
existing property have not been included in the summary schedule. This is
the case with respect to Crockett-Carquinez whose five year plan included
only requests related to existing property. Expenditures related to
existing property are not included in the five year plans because expendi-
tures for operations and maintenance will continue to be funded through the
normal budgetary process with property tax revenues and allocations from
the special District Augmentation Fund. Included in this report are more
detailed summaries regarding the above fire districts ' five year plans.
As stated earlier, the approach to financing the needs identified in the
five year plans excludes consideration of the Special District Augmentation
Fund. With the exclusion of the special District augmentation Fund and the
inadequacy of property tax revenue growth, it is evident that other sources
of funding must be pursued. There are a number of potential financial
alternatives that have been discussed in various documents such as the Fire
Protection Plan of the County General Plan and the January 31, 1984 County
Administrator ' s Fire Service Workshop Report that are included in the
general categories of development fees, various special assessments and
taxes, bonds, lease purchasing financing, redevelopment agency assistance
and sale of existing surplus properties. Attachment A of this report
prepared by the Contra Costa County Fire Protection District includes a
more comprehensive listing and brief discussion of these various financing
alternatives. Many of these alternatives may have countywide application
while others would only apply to certain districts. Therefore, this report
does not attempt to link specific revenue sources with individual fire
districts . Itis our view that the appropriate mix of revenue sources must
be reviewed on a district-by-district basis after the adoption and in
support of the five year plans . The implementation and financing of the
five year plans at the district level should be done in conjunction with
the cities served by the districts.
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As discussed above, the five year plans submitted by the county fire
protection districts were reviewed and revised where appropriate to elimi-
nate items related to the replacement or repair of existing property. The
following summaries provide a more detailed outline of the districts '
requests , an outline of fire district service levels and an explanation of
the differences between the requests of the districts and the recommenda-
tions of this office.
I . Contra Costa County (Consolidated)
1. Summary of . Requested Plan:
Add: 80 fire suppression positions
11 fire prevention positions
2 training instructor positions
2 communications positions
1 mechanic position
i maintenance worker position
1 clerical position
1 Electronic Data Processing analyst position
Construct: 7 stations
3 training facilities
1 hazardous material storage building
Acquire: 9 station sites
1 communications/administration site
1 training site
The total ,cost of the proposed plan is $25 , 392 , 000 .
2 . Summary of Fire District Service Levels
CURRENT REQUESTED RECOMMENDED
ELEMENT LEVEL ADDITIONS ADDITIONS
Staff 268 99 86
Stations 18 7 7
Other Facilities 2 4 1
Station Sites 3 9 9
Other Facility Sites 0 (B) 2 1
Cost $14 , 152 , 000 $25 , 392 , 000 $19 , 238 , 000
(B) 1984-1985 Budget
3 . Summary of Recommendations and Deletions
The recommended additions include only items that are directly related to
emergency response, i. e. , life saving or fire suppression and related
support activities that are currently being performed by the district. In
other words , personnel, facilities and equipment to enable the district to
provide stations at appropriate locations and increase response capabili-
ties at existing stations were justified on the basis of population density
and/or commercial development.
The one exception to this approach was the recommended deletion of posi-
tions and equipment related to fire prevention activities. While the fire
prevention function is clearly affected by development activity, increased
service levels are not included in the five year plan recommendations
because the district is currently involved in implementing a fee schedule
that will generate revenue to cover a substantial portion of the costs of
the Fire Prevention Bureau.
Other iterns that are recommended for deletion relate primarily to training
facilities that would provide training capabilities presently not available
to the district. Although the recommended deletions are worthwhile, they
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do not appear to be required for the provision of basic fire district
functions .
II . Riverview Fire
1 . Summary of Requested Plan:
Add: 11 fire suppression positions
Construct: 6 stations
1 training facility
1 repair shop
Acquire: 5 station sites
The total 'cost of the proposed plan is $6 , 685 ,000.
2 . Summary of Fire District Service Levels
CURRENT . REQUESTED RECOMMENDED
ELEMENT LEVEL ADDITIONS ADDITIONS
Staff 89 11 11
Stations 6 6 6
Other Facilities 1 2 2
Station Sites 1 5 5
Other Facility Sites 0 (B) 0 0
Cost $5 , 067, 115 $6, 685 , 000 $6 , 685, 000
(B) 1984-1985 Budget
3 . Summary of Recommendations
The recommended additions include only items that are directly related to
emergency response, i .e. , life saving or fire suppression and related
support activities that are currently being performed by the district, in
other words , personnel, facilities and equipment to enable the districts to
provide stations at the appropriate locations.
III . Moraga
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1 . Summary of Requested Plan
Add: 4 fire suppression positions
Construct: 1 training facility
Acquire: 1 training site
The total cost of the proposed plan is $1, 240, 000 .
2 . Summary of Fire District Service Levels
CURRENT REQUESTED RECOMMENDED
ELEMENT LEVEL ADDITIONS ADDITIONS
Staff 24 4 4
Stations 2 0 0
Other Facilities 0 1 1
Station Sites 0 0 0
Other Facility Sites 0 (.B) 1 1
Cost $1 , 536 , 397 $1, 240, 000 $1 , 240, 000
(B ) :1984-'1985 Budget
3 . Summary of Recommendations
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The recommendedradditions include only items that are directly related to
emergency response, i.e. , life saving or fire suppression and related
support activities that are currently being performed by the district.
Included in the recommended additions is funding for the construction of a
training facility and the purchase of additional property surrounding an
existing station for additional training purposes. Although the training
facility and property represent an enhancement of the current training
capabilities of the district, the items have been included inasmuch as they
are a basic component of fire district training.
IV. Bethel Island
1. Summary of Requested Plan
Acid: 6 fire suppression positions
1 20%40 mechanic
1 20/40 secretary
Construct: 1 station
Acquire: 1 station site
The total 'cost of the proposed plan is $1, 515 , 000 .
2 . Summary of Fire District Service Levels
CURRENT REQUESTED RECOMMENDED
ELEMENT LEVEL ADDITIONS ADDITIONS
i
Staff 3 8 8
Stations 1 1 1
Other Facilities 0 0 0
Station Sites 1 0 1 1
Other Faci.lity `Sites 0 (B) 0 0
Cost $306 , 253 $1 , 515 , 000 $1 , 515 , 000
(B) 1984-1985 Budget
3 . Summary of Recommendations
The recommended additions include only items that are directly related to
emergency response, i.e. , life saving or fire suppression and related
support activities that are currently being performed by the district.
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V. Brentwood
1 . Summary of Requested Plan
Add: 1 fire prevention position
Construct: 2 stations
1 water tanker garage
Acquire: 2 station sites
The total cost of the proposed plan. is $1 , 397 , 000.
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2 . Summary of Fire District Service Levels
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CURRENT REQUESTED RECOMMENDED
ELEMENT LEVEL ADDITIONS ADDITIONS
Staff 0 1 0
Stations 1 2 2
Other Facilities 0 1 1
Station Sites 0 2 2
Other Facility Sites 0 (B) 0 0
Cost $357, 112 $1 ,397,000 $1,222 ,000
(B) 1984-1984 Budget
3 . Summary of Recommendations & Deletions
The recommendedadditions include only items that are directly related to
emergency response, i .e. , life saving or fire suppression and related
support activities that are currently being performed by the district.
The one exception to this approach is the deletion of one fire inspector
position requested for fire prevention activities. Funding for fire
prevention activities should be sought through the implementation of a fee
schedule to generate revenue to cover the cost of such activities .
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VI . Tassaj ara
1 . Summary of Requested Plan
s
Add: 1 fire suppression position (cadet)
Construct: 1 station
r
Acquire: 1 station site
The total cost of the proposed plan is $443 , 000.
2. Summary of Fire District Service Levels
CURRENT REQUESTED RECOMMENDED
ELEMENT LEVEL ADDITIONS ADDITIONS
Staff 2 1 1
Stations 1 1 1
Other Facilities 1 0 0
Station Sites 0 1 1
Other Facility �Sites 0 (B) 0 0
Cost $114, 453 $443 , 000 $443 , 000
(B) 1984-1985 Budget
3 . Summary of Recommendations
The recommended additions include only items that are directly related to
emergency response, i.e. , life saving or fire suppression and related
support activities that are currently being performed by the district.
VII . Orinda
9t Yr'kir4r* I
1. Summary of Requested Plan
Add: 5 fire suppression positions
The total cost of the proposed plan is $1,012,500.
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2 . Summary of Fire District Service Levels
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CURRENT REQUESTED RECOMMENDED
ELEMENT - i LEVEL ADDITIONS ADDITIONS
Staff 33 6 6
Stations 3 0 0
Other Facilities 0 0 0
Station Sites 0 0 0
Other Facility Sites 0 (B) 0 0
Cost $1 , 925 ,880 $1 ,012,500 $1, 012, 500
(B) 1984-19,85 Budget
3 . Summary; of Recommendations
The recommendedadditions include only items that are directly related to
emergency response, i.e, life saving or fire suppression and related
support activities that are currently being performed by the district.
VIII . Eastern
1 » Summary of Requested Plan
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Add: 1 fire suppression position
Construct: 1 station
1 vehicle garage
The total (cost of the proposed plan is $337 , 000 .
2 . Summary of Fire District Service Levels
CURRENT REQUESTED RECOMMENDED
ELEMENT LEVEL ADDITIONS _ADDITIONS
Staff 3 1 1
Stations 1 1 1
Other Facilities 0 1 1
Station Sites 0 0 0
Other Facility !�Sites 0 (B) 0 0
Cost $600 ,704 $337 , 000 $337, 000
(B) 1984-1985 Budget
3 . Summary of Recommendations
The recommended additions include only items that are directly related to
emergency response, i.e. , life saving or fire suppression and related
support activities that are currently being performed by the district.
As discussed elsewhere in this report, the information presented in the
district summaries may not reflect the total requests of the districts as
submitted in the five year plan. Items that related to the replacement,
repair or maintenance of existing property are not included in the summary
of fire district service levels. Copies of the individual fire district' s
five year plans may be obtained from this office. Cost information pre-
sented in this report reflects total cost of .the five year plans including
items that. are not specifically outlined in the report such as vehicles,
furnishings and equipment related to the recommended personnel and facili-
ties.
The recommendations of this office regarding the requested additions are
general in nature from the standpoint of meeting the five year plan crite-
ria and being `justified on the station location criteria of the Fire
Protection Plan of the County General Plan and reasonable expectations of
future fire service demands in Contra Costa County. The items included in
the recommendations are suitable for general planning purposes but should
be subject to continuing analysis and verification of need as specific
funding proposals are identified and linked to the elements of individual
fire district plans.
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ATTACHMENT A
1 . Development Fees - A conventional approach to raising local revenues
based on fees usually collected at the building permit stage of develop-
ment. This is one of the easier funding methods to administer but does not
provide an immediate lump sum for facility construction. This method is
most equitable ,in newly-developed areas .
2 . Fire Suppression Assessments - A special district which provides fire
suppression services can use fire suppression assessments to buy or main-
tain fire equipment and to pay firefighters ' salaries. The benefit
received by a parcel of property must match the amount of assessment it
pays .
3 . Special Assessments - Special or benefit assessments are charges
levied upon land on the basis of the benefit conferred in order to finance
the construction of public improvements.
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4 . Special Taxes - A revenue source identified in Proposition 13 that
local governments may use for specific purposes after approval by a
two-thirds vote.
5 . Revenue Bonds - While Proposition 13 limited the use of general
obligation bonds , revenue bonds are still available as a funding source.
Revenue bonds are generally issued after a majority vote of the voters to
finance a public improvement.
A specialtype of revenue bond is the lease-revenue bond, issued by a
non-profit corporation or special authority to construct a facility to be
leased to a local government. Lease payment provides the revenue to pay
off the bond; when the bond is retired, the facility is turned over to the
local government.
Revenue bonds have advantages. First, no new taxes are required.
Second, a majority vote is required prior to bond issuance rather than a
two-thirds vote. In the case of lease-revenue bonds, no voter approval of
issuance is required.
6 . Lease-Purchase Financing - A traditional approach to acquiring equip-
ment for public purposes by involving the private sector; this technique
can also be used to acquire real property, construct buildings and other
facilities . It is relatively easy to administer; advantages include being
able to acquire facilities or equipment without a large capital outlay, and
no additional taxes or fees required for implementation.
7 . Certificates of Participation Lease Financing - Involves the sale of
certificates ( representing interest in leases to public entities ) to
private investors to raise the large dollar amounts needed to finance
certain pu.blicfacilities. Has the advantage of raising a lump sum for
capital facilities construction, providing a manageable payment schedule
for the leasee; and providing a return on investment to the certificate
holders .
8 . Redevelopment Agency Current redevelopment ment law enables a redevelop-
ment agency to use redevelopment revenues from- the tax-increment serviced
bond issues to, pay for infrastructure items. Redevelopment funds could be
used to establish new stations, or relocate existing stations in the
redevelopment area not currently at the optimal location to another loca-
tion either in or out of the redevelopment plan boundaries . It must be
shown that. the implementation of the fire station location plan would
benefit the redevelopment area.
More importantly, the law allows a redevelopment agency to "pay to any
taxing agency with territory located within a project area other than the
community which has adopted the project, any amounts of money which the
agency has; found are necessary and appropriate to alleviate any financial
burden or detriment caused to any taxing agency by a redevelopment
project. "
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9. Public Sector as Entrepreneur - Involves local government operating as
a private firm; ,;examples are municipal insurance programs and development
of surplus property.
10 . Development: Agreements - Entering into a development agreement with a
person having a ,legal or equitable interest in real property for. the
development of the property. Such agreements may stipulate intensity of
development as well as provisions for the reservation or dedication of land
for public purposes.
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Attachment A
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