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02/05/1991, 6 - CITIZENS' ADVISORY COMMITTEE RECOMMENDATIONS ON THE CITY'S LONG-TERM FINANCIAL HEALTH
iIIIII�I�III��IIIII�III 1I ,,. MEETING DATE: city of san lues oBispo 2- 5 - 1/ COUNCIL AGENDA REPORT REM NUMBER: FROM: John Dunn, City Administrative Officer- Prepared fficePrepared by: William C. Statler, Director of Finance 1 SUBJECT: CITIZENS' ADVISORY COMMITTEE RECOMMENDATIONS ON THE CITY'S LONG-TERM FINANCIAL HEALTH CAO RECOMMENDATION Consider the recommendations of the Citizens' Advisory Committee on the City's long- term financial health. REPORT-IN-BRIEF The need for citizen participation and involvement in developing programs to ensure the' City's long-term financial health was identified as a key component of the financial health action plan approved by Council in January 1990. Since August of 1990, the Citizens' Advisory Committee (CAC) has extensively reviewed and evaluated the City's long-term financial needs, and their observations and recommendations are provided in Attachment A. Members of the CAC are aware of tonight's meeting, and it is anticipated that the Chair, Bill Pyper, will address the Council on this issue. DISCUSSION Background i The need to analyze and address the City's long-term financial health was identified as a major objective during the 1987-89 Financial Plan process. To accomplish this objective, the City initiated a comprehensive financial planning effort comprised of two key phases: ■ Development of a cost allocation plan to identify the total cost (direct and indirect) of providing services and a resulting user fee analysis. IN Preparation of a Comprehensive Financial Management Plan (CFMP) which identifies the City's operating, capital, and related revenue needs through the year 2000, and recommends policies, capital financing plans, and revenue sources to meet those needs. The results of this work effort were presented to the Council in conjunction with the 1989-91 Financial Plan process, and implementation of the CFMP's findings and recommendations was adopted as a major objective in the 1989-91 Financial Plan (page B-51). In January of 1990, the Council reviewed general concepts for the development of a comprehensive user fee policy and approved an action plan for the implementation of CFMP. The need for citizen participation and involvement was an integral component 10111n►►1i1l11ll111 city of San Luis OBISPO i;% COUNCIL AGENDA REPORT of the Council's action plan, and accordingly, the CAC was assigned the task of reviewing the City's long-term financial needs and making recommendations on revenue programs and financial policies that the City should implement. The CAC is a seven member citizen committee established by Council to advise the CAO on a wide variety of policy issues. Current CAC members represent a broad range of citizen interests: Bill Piper, Chair Carl Johnston Elenor Kogan Darrel Farrer Henry Rible Melinda Schrenk-Szatlocky Jim Petroni In addition to the seven regular members, Terry Conner served as an ad hoc member representing the Chamber of Commerce during the CAC's discussion of the City's financial health. Scope of the CAC's Review The CAC has devoted significant time and effort in developing the observations and recommendations provided in Attachment A. In arriving at their recommendations, the CAC has met six times beginning in August of 1990 to specifically discuss financing issues. During their evaluation, the CAC reviewed and discussed a number of complex documents, including: ■ Comprehensive Financial Management Plan: 1989-2000 (CFMP) ■ 1989-91 Financial Plan ■ Comprehensive Annual Financial Report for Fiscal Year 1989 ■ Phase I of the CFMP - User Fee Analysis Executive Summary ■ Fee Review Materials - cost recovery recommendations and surveys comparing the City's user fees with those of comparable California communities. These materials were prepared specifically for the CAC at their request, and they are provided in Attachment B. In reviewing the City's long-term financial health, the CAC was requested to address three key questions: ■ What new or increased revenue sources should be implemented? ■ What should be the City's policy regarding cost recovery from user fees? ■ What programs or projects should be deferred or deleted if new or increased revenue sources are not implemented at levels sufficient to ensure the City's long-term health? The CAC's observations and recommendations provided in Attachment A comprehensively address these three questions. �����aib►►►IUI111111�� II�IU city of San Luis OBISPO COUNCIL AGENDA REPORT CAC Observations and Recommendations The CAC's report to the Council is organized into three major sections: ■ Cover memorandum summarizing their observations and principles regarding municipal finance. This memorandum was previously discussed at the joint City Council/Planning Commission meeting of January 22, 1991. ■ Specific revenue and policy recommendations. I ■ Prioritization of programs and projects currently under consideration by Council. The CAC's report is comprehensive and stands on its own in addressing the City's long- term financial health. However, the following is a summary of the key points from the CAC's report: ■ The City's financial health and that of the local economy are directly linked. As such, "quality-of-life" and "economic development" can no longer be viewed as divergent or opposite goals; they have to be viewed as parallel and complimentary objectives. ■ Accordingly, the City cannot continue its commitment to providing an excellent program of municipal services as well as achieve our "quality-of- life" goals (environmental protection, transit, bikeways, air quality, affordable housing, performing arts, open space, parkland development, recreation, historic preservation) without supporting the economic activities necessary to financially make these objectives possible. ■ We must achieve an effective balance between: keeping our City economically healthy; reducing unemployment and underemployment; producing sufficient municipal revenues without their becoming onerous to our citizens; providing modern and efficient municipal services and facilities; and protecting and preserving our natural environment. ■ In asking that residents and business owners increase the amounts that they pay for municipal services, we must ensure that our services provide "value for cost" - that they are delivered efficiently and effectively. Productivity improvement must be viewed as a high priority and an ongoing source of financing City operations. ■ The City is in good financial condition today. This, in itself, is not a major criteria of assessing the City's past successes. However, if we are to achieve the "balance" discussed above, we must continue our commitment to financial health and a strong General Fund. Implementing the following revenue programs is consistent with this commitment and achieving the "balance" discussed above: 1. Increasing the transient occupancy tax rate from 6% to 9%. ',3 �������►i►�►illllllf ° ll�lll City Of San LUIS OBISPO Ni;% COUNCIL AGENDA REPORT 2. Implementing development impact fees to ensure that new development pays for itself, which will prevent existing residents and businesses from subsidizing new developments. 3. Relying on user fees to a greater extent than in the past to finance municipal programs. This is consistent with the practices of the majority of California cities. ACTION PLAN There are a number of specific actions that the Council must take in implementing the recommended policy and revenue measures necessary to ensure the City's long-term financial health. The policy issues - such as economic development strategies and a comprehensive user fee cost recovery program - will be addressed during the 1991-93 Financial Plan process. However, it is recommended that the Council consider revenue actions on a case-by-case basis under the following schedule: Review Council Groups Consideration Downtown Parking Fees BIA Parking Committee February 1991 Parking Management Committee Transient Occupancy Tax Chamber of Commerce February 1991 Increase from 6% to 9% Hotel/Motel Association Water and Sewer Chamber of Commerce April 1991 Connection Fees Contractor's Association Development Review Fees Chamber of Commerce April 1991 (Planning, Building & Safety, Contractor's Association Engineering) Planning Commission Architectural Review Commission Traffic Impact Fee Chamber of Commerce May 1991 Contractor's Association Business Tax Ordinance Chamber of Commerce May 1991 Update BIA Other Development Chamber of Commerce Fall 1991 Impact Fees Contractor's Association Recreation Fees Chamber of Commerce Winter 1991 Parks and Recreation Commission LO' I��M�ibii►�u►IIIIIIII�p1 ���lll City Of San LUIS OBISPO ViS COUNCIL AGENDA REPORT As reflected in the above schedule, the first issues to be addressed by the Council are parking revenues and an increase in the transient occupancy tax from 6% to 9%, which are both scheduled for the February 19, 1991 Council meeting. STATUS OF THE CITY'S LONG-TERM FINANCIAL HEALTH PROJECT As noted in the Action Plan above, there are significant steps remaining in completing the tasks necessary to complete our "long-term financial health" project. However, a number of significant tasks have been accomplished since this effort began, including: I ■ Implementation of a comprehensive financing program to support the sewer system's operational and facility improvements, including the receipt of State low-cost financing. ■ Adoption of comprehensive debt management and fund balance policies. ■ Implementation of a comprehensive cost allocation plan to better identify the true costs of delivering municipal services. ■ Implementation of financing for the Fire Station site acquisition, Recreation Center Rehabilitation, and open space acquisition. ■ Identification of our long-term financial needs and revenue and expenditure alternatives to meet them. ■ Upgrade in the City's credit rating. In considering how we're doing in completing our "long-term financial health" project, we need to realize that this project will never really be completed. Assuring our financial health is a continuous process not confined to a specific study or time of year. We need to continually ensure that we are delivering programs that our community wants, that they are delivered efficiently and effectively, and that we have the financial resources available to pay for them. SUMMARY The CAC has devoted long, thoughtful hours to evaluating a number of complex municipal finance issues, and the staff would like to extend our appreciation for their hard work and dedication in taking on this task. Their observations and recommendations provide a sound base for going forward on the economic development, revenue, and productivity programs that are before us. ATTACHMENTS A. Report from the CAC on the City's Long-Term Financial Health 1. Observations and Principles Regarding Municipal Finance - Introduction to the Recommendations to the City Council 2. Revenue and Policy Recommendations 3. Prioritization of New Program Efforts and Projects —s B. User Fee Review Materials LTFH/CACRECMS.YPF Exhibit A CITIZENS' ADVISORY COMMITTEE REPORT ON THE CITY'S LONG-TERM FINANCIAL HEALTH February 5; 1991 CITY OF SAN LUIS OBISPO_ State of California TABLE OF CONTENTS Observations and Principles Regarding Municipal Finance An Introduction to the Recommendations to the City Council 1 Long-Term Financial Health Recommendations Revenues, Productivity Improvements, and General Financial Policies 9 Comprehensive User Fee Policy 10 Review of New Program Efforts and Capital Facilities 15 6- ��iiltll IIII I ������ II�IIIIII � city of sAn tuis oBispo 990 Palm StreetlPost Office Box 8100 • San Luis Obispo, CA 93403.8100 January 21, 1991 MEMORANDUM To: City Council From: Citizens Advisory committeeig fd Subject: Observations and Principlesng Municipal Finance. Introduction to the recommendations to the City Council: 1. Strong Post-World War II Economy Though there have been several times in San Luis Obispo's history when the area and City have had a stagnant recession economy, more recently there has been relatively steady City growth and prosperity from the 1950's to the present day. Therefore, the City government, and the residents of the City, have become used to a . situation where, with little effort on our part, the City has prospered and there have been sufficient resources for the City government to maintain and improve their services. 2 . A Tradition of Strong Municipal Services The City government itself, particularly in the past ten years, has undergone major change .and, in particular, many if not most of the services in the City have been substantially modernized and improved, with the result that today's citizens receive desired and effective municipal services. There is an ongoing effort to improve the services and to have them reflect changing conditions and requirements. 3 . An Award Winning Budget Today, the City of San Luis Obispo operates from a policy-oriented two- year municipal budget (which has received statewide and national recognition) , one which has a strong Council Work Program component. The budget reflects a balanced approach to maintaining and improving City services, to maintaining and building public facilities, and to setting aside adequate reserves for emergency purposes. 4 . Concern About Adequacy of Future City Revenues The City, at the present time, has sufficient revenue to continue its program of municipal services including development and maintenance of public facilities; however, increasingly there is a concern about the future adequacy of municipal revenue if the City is to continue providing strong services, engage in public facility development and preserve our special qualities. 5. Greater Dependence on Tax Revenue The City, generally speaking, and compared to other California cities, has been more dependent on taxes to provide a majority of its revenue base and has been less dependent on fees and charges to pay for services 1 !p provided. Historically, because of the relatively good financia' position of the City, there has been less of an emphasis on ful recapturing the cost of certain services, even when they primarily o.L exclusively accrue to the advantage of a particular group of users. 6. Essential Agreement on a Desired Future The City, during the last few years, has increasingly defined certain of its desires for the future, which include: A. Provide a more diverse transportation system in order to decrease the dependence on the automobile, relieve growing congestion and decrease air pollution, encourage increased use of transit, and provide safe bicycle and walking opportunities. B. Present a modern municipal "utility" service, which includes increasing the water supply, increasing water conservation, and addressing water quality issues, adequately handling our sewage collection and treatment problems which in the next several years call for construction of an enlarged and improved sewage treatment plant, replacement of a portion of our sewer main collector system and preventing the "inflow and infiltration" of storm water in certain areas of the community. C. Take a stronger stance in the field of environmental protection, which includes the preservation of certain defined areas before they are lost to development, preservation of the creek setbacks and riparian vegetation, properplanning for the long-term use ar enjoyment of our park areas, the creation of additional indoor al. outdoor recreational facilities, the establishment of pedestrian and bicycle paths, the establishment of an urban greenbelt around the City, and continued protection to our mountains and hillsides. D. Protect and preserve our neighborhoods. Our neighborhoods are where we live, where we spend the majority of our lives, and provide the major "environment" for our living. Issues of privacy, peace and quiet, safety (and perceptions of safety) , freedom from traffic intrusion and traffic noise, nearby parks and playgrounds, play space for children, and others become of critical importance to our sense of security, well-being and enjoyment. 7. A Wider Perspective on Quality of Life In dealing with the above and related issues, the City government increasingly realizes that it must define and take action steps to preserve and to enhance the "quality of life" for the benefit of our present and future citizens. It is necessary to realize that a major determiner of "quality of life" for most people is whether they are employed, and employed in a position that utilizes his or her abilities, and which pays a 'sufficient amount of money for meeting the necessities (and a few luxuries) of life. Therefore the "balance" is to keep our City economically healthy, to do what can be done to reduce unemployment or underemployment, to produ sufficient municipal revenues but without their becoming onerous to ou_ Z �- 9 citizens, to present modern and effective municipal services, to maintain a program of public facility development and maintenance, and develop a program of protecting and preserving our City's natural qualities. All of these activities cannot be separated from one another but must be integrated together into a program where the City defines what it wants to become, where there is a commitment to the action steps necessary to do this, and where the well-being of the City as a whole, and of our individual citizens, is the primary criteria for success. 8. Retain the Strength of the Downtown A plan must be developed for the downtown, and the downtown must be retained as the major commercial and retail core in the County. The City, including the downtown, serves as a regional center in employment, retailing, government, education, medicine, finance, professional services, cultural events, and recreation and entertainment; though this is largely the result of numerous, incremental decisions, and is not the result of a consensus plan, it will take planning and effort to continue the City's strength as the major regional center. 9. You Can't Get It If You Can't Afford It We must continue to realize that "we can't do what we want to do unless we can afford it" which implies a dual responsibility for both explicitly setting forth what is truly desired for the community, and for steering and guiding our community's economic situation and municipal finances to the end that the City has the financial capacity to pay for environmental protection and the other amenities that we desire. 10. Need for Sufficient City Revenue We must fight to keep our municipal revenue strong, for with an adequate financial base the City will have options and opportunities for achieving its program, and will have flexibility to meet the community's changing needs. Without adequate revenue, the City will be forced into a defensive posture of trying to maintain its existing municipal services, and trying to maintain public facilities, but could fall behind in these tasks due to a lack of sufficient financial resources. 11. City's Role in Protecting City Economy Increasingly, there is a direct link between the international and national and state economy, our local area economy, the City's economy and the City's municipal revenues. While the first three are beyond our control and influence, the City can and should play a constructive role in assisting to produce a healthy area and City economy, within the framework of the City's total objectives as set forth in the General Plan. 12 . More Competitive Environment Is The New Reality We have to recognize that other cities in our area have very conscious and aggressive policies of population and economic growth. They desire to increase their economic activity and "market share". They desire to get some of the retailing, offices and industry that are presently in San Luis Obispo. In the future, San Luis Obispo could have a difficult time just hanging onto our present market share. Given what is happening in other cities, there may be a limited possibility of 3 �- �o increasing San Luis Obispo's share. We must consciously decide (a) d- we want to retain our retailing market share., (b) is it satisfactory lose a portion of market share, or (c) do we actually want to increas= our market share in specific focus areas? Much City government effort must be directed to reacting to the proposals of others; greater effort must be directed to positively achieving the choices that we make. 13 . Governmental Educational Components of Economy Often Underrated While the importance to the area economy of the private sector (retailing, offices, manufacturing, services) is not to be understated, the importance of the public sector (City, County, Cal Poly, Cuesta, CMC, State and Federal offices, etc. ) to the total area economy is often under-appreciated. There may need to be the development of programs which will be supportive of the retention/reasonable growth and expansion opportunities for these governmental and educational functions or, failing that, there may be the dispersal of certain of these uses to other areas, with the resultant loss to our local economic strength. 14. Future Need for Strong Municipal Revenue Though the City's relatively positive past financial situation has caused us to spend less time on the question "can we really afford to improve our City services?", impending operational service/workload issues do exist, and will have to be faced in our next budget. Three quick examples of where the City may be facing manpower increase/service level improvement issues are: having sufficient law enforcement personnel to deal with escalating calls for service/growing number of law enforcement incidents; the need for additional personnel t monitor/operate our improved sewer treatment and water treatment plants and the need for additional personnel to deal with our increased park area, landscaping, and tree maintenance responsibilities. We have had the luxury of taking our basic services for granted, which has enabled us the opportunity to work on other community issues. The "bottom line" is that even though the City has been able to provide desired services and service improvements in the past, there is certainly no guarantee that this will be the case in the future. With insufficient revenue growth, there would have to be reassessment, with possible service decreases. 15. Importance of Tourist Economy Tourism is very important to the economy of the City. The nature of the tourist economy has changed over the years, with the City changing from an overnight stop on the way to somewhere else, to more of a destination in itself. Tourism provides all of the Transient Occupancy Tax, a substantial portion of the Sales Tax, and revenue to both the private sector (both direct and "spill-over" to non-tourist businesses) and to the City government. Tourism is a "clean industry" that needs City support, and one which, properly used, can assist the community to attain many of our objectives. The amenities that cause the City to be a nice place to live are also those which cause people to want to visit. 16. Light Industry - Benefits and Questions What's the benefit of the City having light industry, in the total scheme of things? Much industry, in this day and age, can (and muse be operated cleanly, minimizing any negative effect on the environment. 4 W/-I/ Industry provides jobs and, in the case of many industries, provides sales tax revenue. While industry is important in itself, it reaches its greatest importance in relation to the other sectors of the local economy. It provides economic diversification and reduces economic vulnerability in an economic downturn. It augments and complements the strong governmentally-based economy, the retail sales economy, and the visitor economy. The desirability of having sufficient light industry in our City raises some important questions. Should the City be aggressive in the pursuit of new industry? Should the City commit itself to protecting and enhancing the industry which is already here? Is industry of prescribed types necessary to provide for the needs of our residents and the needs of other businesses? If we slight or underprotect our industry, will this have certain negative long-term effects? Are there types of industry we don't particularly want because of undesirable by-products or impacts? Are we serving the community's long-term interests by converting industrially-zoned land to residentially-zoned land? These and other related questions are often not raised, and are not answered. Consequently, light industry appears to some to be the orphan of the community's economic. sectors, loved and defended by few, yet making a real jobs/economic impact contribution. It is timely to resurrect the questions and issues regarding light industry, and to develop a more conscious policy towards this sector? 17 . The Care and Feeding of Retailing The single largest revenue source of the City is sales tax. The second largest revenue source, property tax, produces only 55% of what sales tax produces. It is retail store sales and other "point of source" sales within the City which produces the sales tax. This argues that retail sales are not only critically important to the economy, producing secondary benefits to other sectors to the economy, but are also financially critical to the City. This further argues that, in the competitive environment the City is in, it is necessary for the City to take a strong supporting role to protect and enhance our retail business. The past attitude that the private sector takes care of the private sector, and that it neither wants nor needs assistance from government, is no longer appropriate. 18. The Jobs/Housing Balance The community's jobs/housing balance has recently been (and remains) an issue within the community. Though the concept has appeal, a recent article (Urban Land Magazine, Urban Land Institute, October 1990) indicates that this is a complex issue. In further considering this issue, four overview principles are suggested as appropriate: A. Jobs/housing balance should be pursued by the City to the extent that it can be achieved without introducing negative effects on the City's economy. 5 1p �� The usually-cited "remedy" for an existing jobs/housing imbalance where the number of jobs exceeds the number of living units these are defined) , is to either: (1. ) Increase the number of housing units, or (2. ) Decrease (or hold) the number of jobs. B. Regarding 1. above, it is recognized that the number of housing units can only be increased to a certain point without introduction of certain resource and infrastructure limitations, such as: (1. ) Provision of an adequate water supply, (2 . ) Provision of adequate sewer collection and treatment facilities, (3. ) Prevention of air quality deterioration, (4. ) Prevention of traffic congestion, (5. ) Provision of adequate parks, playgrounds and open space, (6. ) Preservation of community amenities and quality of life. C. We have to recognize that the City, over many years, has purposefully planned for and limited our residential development• based in part on the negative consequences of too much growth. Regarding A.l. above, it is recognized that the ability of our citizens to economically sustain themselves is a critical component of "quality of life" , and that the community has a responsibility to sustain both the community's overall economy as well as the City government's revenue sources. The City has a responsibility to protect and enhance existing businesses and jobs, and to plan for economic activity and job creation as are necessary to provide for the City's continued economic vitality. D. The City has become a regional center in employment, retailing, governmental services, educational services, medical services, financial services, and culture and entertainment, and the City should support and sustain these services/economic sectors rather than to diminish them. In discussion of this issue by the Committee, it was stated that certain businesses and industries "pay a lot of money to a few people and pay a lot of people very little money. " The consequence of that is that many who work here cannot afford the local housing costs. Though this does cause a commute, it was stated that it does bring people to the City who buy meals and goods, and then they "take their need for residential services back home. " It was postulated that a jobs/housing balance might not be possible, and it isn't entirely . clear it is desirable. In conclusion, while jobs/housing balance may be a desirable community objective, and we should work towards that goal to reduce commute distances, traffic congestion and air pollution, we also have to provide balance between creating a livable community and maintains a strong economy, and that the City should not take steps adhering to this concept which might have the effect of damaging the local economy. 19 . City as Protector of General Fund One important role of City government is that of protector/steward of the City's General Fund. The General Fund is that collection of municipal revenues (excepting parking, water and sewer revenues) which pay for providing City services. These services range from critically needed public safety services such as police and fire, to those which provide for human needs such as recreation services for youth and shelter for the homeless. Without an adequate General Fund, the City cannot meet its obligations to its citizens to provide essential and desired services. Therefore, it is necessary to create a General Fund which is capable of sustaining our City's ability to provide adequate police services, to build parks, to protect our environment, to manage our growth, and to provide the myriad of services that our community expects and demands. 20. Need for City Independence and Self-Reliance California has historically had a tradition of strong "local home rule", which has given California cities greater independence and authority than cities in other states. In the last generation there has been a considerable erosion of the local home rule principle, as cities have experienced an erosion of their revenue base and as the State Legislature deals with a deteriorating State revenue base, and increasingly displaces its financial burden onto cities and counties. It is absolutely necessary, in the current and projected political and financial environment of the State, that cities, and San Luis Obispo in particular, remain strong. This is done by taking responsibility for our own destiny, and by not allowing ourselves to become dependent on the Federal and State government, as they are increasingly overwhelmed with their own financial shortfalls, and increasingly look for ways to better themselves by taking from others. Control and self-reliance and strength, rather than dependency and less of self-control and weakness, have to be the prevailing concepts of our City for the next decade if we are to accomplish our goals. 21. The Need for a Different Perspective Implicit in the above is that, in San Luis Obispo during the last two or three decades, the "quality-of-life" perspective has been dominant, and the "economic development" perspective has been subordinated as either not necessary or even as being harmful to a desired quality-of- life. We may now be at a time when quality-of-life and economic development can no longer be viewed as divergent or as opposites; they may have to be viewed as parallel and complimentary objectives. The new realization may become, "you can't have one without the other". The City can't indefinitely continue its progress towards a high environmental consciousness/quality-of-life and excellent services without supporting the economic activities necessary to obtain these objectives. 22 . The City's Ultimate Purposes A strong City economy and a strong municipal revenue base is not, by itself, the major criteria of success for the City, for our ultimate purpose is to create a sense of community and an environment for people to do positive things in their lives. At the same time, it must be realized that the City cannot achieve its desired program and produce services and benefits for our citizens without a pre-determined level of City income. We must have the desire and commitment to do what needs to be done to properly serve our citizens, in order to give them a positive experience of living within an urban environment. JD:mc 8 CITIZENS' ADVISORY COMMITTEE LONG-TERM FINANCIAL HEALTH RECOMMENDATIONS REVENUES The City should implement the following revenue programs: A. The Transient Occupancy Tax (TOT) rate should be increased from 60% to 9%. This will result in approximately $700,000 annually in new revenues. B. User fees should play a larger role in financing City services, and accordingly, they should be increased pursuant to an adopted City-wide cost recovery policy. Based on initial analyses, this could generate approximately $1.1 million annually. C. Development impact fees should be implemented in order to ensure that new development pays its fair share of the cost of constructing necessary community facilities. Based on fees in other communities and projected growth at 1%, this could generate approximately $600,000 annually. D. Special Capital Improvement Considerations 1. A new, dedicated revenue source (such as a 1/2% sales tax, which would require County-wide voter approval) is needed if the City is to implement an expanded parkland and open space acquisition program. 2. The City's flood control policies and plans are currently under review, and it is anticipated that several changes to the existing 1983 policy will be made. If there are significant capital costs associated with the revised policy, a new dedicated revenue source (such as grants, developer fees, assessments, or voter- approved financing) will be required. PRODUCTIVITY IMPROVEMENTS In addition to developing new revenue sources, ensuring that programs are delivered in an efficient, cost effective manner is an essential element in providing for the City's long-term financial health. Implementing productivity improvements that will result in operating cost savings of at least 3% annually is an appropriate goal. This would generate approximately $500,000 annually in "new funds" which would be available to support new programs or projects. GENERAL FINANCIAL POLICIES The City should adopt the following general financial policies: A. The City needs to develop and implement an overall economic policy which clearly articulates goals and objectives in order to ensure our community's economic health and fiscal independence. 9 � �%O B. The City's water, sewer, and parking enterprise funds should continue to be entirely self-supporting. C. The City must update its business tax ordinance to bring it out of the 50's and into the 90's. D. The City should seek cost recovery for its paramedic program when the current ambulance contract is renewed in 1991. E. New development should fully pay for itself. COMPREHENSIVE USER FEE POLICY The City needs to adopt a comprehensive user fee policy that incorporates the following features: A. Ongoing Review Fees need to be reviewed and changed on an ongoing basis to ensure that they keep pace with changes in the cost-of-living. Many of the City's existing development review fees have not been reviewed or modified since 1983. In bringing fees to appropriate 1991 levels, significant percentage increases will be required solely to account for the passage of time. B. User Fee Cost Recovery Levels In setting user fee cost recovery levels, the following factors should be considered: 1. Community-Wide vs Special Benefit The level of user fee cost recovery should consider the community-wide versus special service nature of the program or activity. The use of general purpose (tax) revenues is appropriate for community-wide services, while user fees are appropriate for services which are of special benefit to easily identified individuals or groups. 2. Service Recipient vs Service Driver After considering community-wide versus special benefit of the service, the concept of service recipient versus service driver should also be considered. For example, it could be argued that the applicant is not the beneficiary of the City's development review efforts: the community is the primary beneficiary. However, the applicant is the driver of development review costs, and as such, cost recovery from the applicant is appropriate. 3. Effect of Pricing on the Demand for Services The level of cost recovery and related pricing of services can significantly affect the demand and subsequent level of services provided. At full cost recovery, this has the specific advantage of ensuring that the City is providing services for which there is genuinely a market that is not overly-stimulated by artificially low prices. Conversely, high levels of cost recovery will negatively impact on the delivery of services to lower income groups. This negative feature if especially pronounced, and works against public policy, if the services are targeted to low income groups. 4. Feasibility of Collection and Recovery Although it may be determined that a high level of cost recovery may be appropriate for specific services, it may be impractical or too costly to establish a system to identify and charge the user. Accordingly, the feasibility of assessing and collecting charges should also be considered in developing a user charge policy, especially if significant program costs are intended to be financed from that source. C. Factors Which Favor Low Cost Recovery Levels Very low cost recovery levels are appropriate under the following circumstances: 1. When there is no intended relationship between the amount paid and the benefit received. Almost all "social service" programs fall into this category as it is expected that one group will subsidize another. 2. When collecting fees is not cost-effective or will significantly impact the efficient delivery of the service. 3. When there is no intent to limit the use of (or entitlement to) the service. Again, most "social service" programs fit into this category as well as many public safety (police and fire) emergency response services. Historically, access to neighborhood and community parks would also fit into this category. 4. When the service is non-recurring, generally delivered on a "peak demand" or emergency basis, can not reasonably be planned for on an individual basis, and is not readily available from a private sector source. Many public safety services also fall into this category. 5. When collection of fees would discourage compliance with regulatory requirements and adherence is primarily self-identified, and as such, failure to comply would not be readily detected by the City. Many small-scale licenses and permits might fall into this category. D. Factors Which Favor High Cost Recovery Levels The use of service charges as a major source of funding service levels is especially appropriate under the following circumstances: 1. The service is similar to services provided through the private sector. 2. Other private or public sector alternatives could or do exist for the delivery of the service. 3. For equity or demand management purposes, it is intended that there be a direct relationship between the amount paid and the level and cost of the service received. 4. The use of the service is specifically discouraged. Police responses to disturbances or false alarms might fall into this category. 5. The service is regulatory in nature and voluntary compliance is not expected to be the primary method of detecting failure to meet regulatory requirements. Building permit, plan checks, and subdivision review fees for large projects would fall into this category. E. General Concepts Regarding the Use of Service Charges The use of service charges should be subject to the following general concepts: 1. Revenues should never exceed the reasonable cost of providing the service. 2. Cost recovery goals should be based on the total cost of delivering the service, including direct costs, departmental administration costs, and organization-wide support costs such as accounting, personnel, data processing, vehicle maintenance, and insurance. 3. The method of assessing and collecting fees should be as simple as possible in order to reduce the administrative cost of collection. 4. Rate structures should be sensitive to the "market" for similar services as well as to smaller, infrequent users of the service. 5. A unified approach should be used in determining cost recovery levels for various programs based on the factors discussed above. F. Low Cost-Recovery Services Based on the criteria discussed above, the following types of services should have very low cost recovery goals. In selected circumstances, there may be specific activities within the broad scope of services provided that should have user charges associated with them. However, the primary source of funding for the operation as a whole should be general purpose revenues, not user fees. 1. Delivery of public safety emergency response services such as police patrol services and fire suppression. 2. Maintaining and developing public facilities that are. provided on a uniform, community-wide basis such as streets, parks, and general purpose buildings. 12 a 3. Delivery of social service programs and economic development activities. G. Recreation Programs The following cost recovery policies should be adopted for the City's recreation programs: 1. Cost recovery for activities directed to adults should be relatively high. 2. Cost recovery for activities directed to youth and seniors should be relatively low. Although ability to pay may not be a concern for all youth and senior participants, these are desired program activities, and the cost of determining need may be greater than the cost of providing a uniform service fee structure to all participants. Further, there is a community-wide benefit in encouraging high-levels of participation in youth and senior recreation activities regardless of financial status. 3. The overall cost recovery goals for recreation programs should be increased from 40% to 50%. The cost study performed in 1988 would indicate a current recovery level of 35%. 4. For cost recovery activities of less than 100%, there should be a differential in rates between residents and non-residents. 5. These policy guidelines are sufficient in themselves in providing direction for the setting of recreation fees. Accordingly, it is recommended that the use of formal cost recovery goals for specific recreation activities (page B-4 of the 1989-91 Financial Plan) be discontinued. Although these targets may be internally useful in administering recreation fees, the City's management should have as much flexibility as possible in setting spec activity fees as long as they meet the objectives and criteria provided above. H. Development Review Programs 1. Services provided under this category include: a. Planning (planned development permits, tentative tract and parcel maps, rezonings, general plan amendments, variances, use permits). b. Building and Safety (building permits, structural plan checks, inspections). c. Engineering (public improvement plan checks, inspections, subdivision requirements). 2. Cost recovery for these services should be very high. In most instances, the City's cost recovery goal should be 100%. Recommended exceptions to this standard include ARC review fees, which is a review process clearly intended to serve the broader community as well as the applicant, and public information services such as agenda subscriptions. 3. However, in charging full cost recovery, the City needs to clearly establish and articulate standards for its performance in reviewing developer applications to ensure that there is "value for cost". I. Comparability With Other Communities 1. Surveys of the comparability of the City's fees to other communities is useful background information in setting fees for several reasons: a. They reflect the "market" for these fees and can assist in assessing the reasonableness of San Luis Obispo's fees. b. If prudently analyzed, they can serve as a benchmark for how cost- effectively San Luis Obispo provides its services. 2. However, fee surveys should never be the sole or primary criteria in setting City fees as there are many factors that affect how and why other communities have set their fees at their levels. For example: a. What level of cost recovery is their fee intended to achieve compared with our cost recovery objectives? b.' What costs have been considered in computing the fees? c. When was the last time that their fees were comprehensively evaluated? d. What level of service do they provide compared with our service or performance standards? e. Is their rate structure significantly different than ours and what is it intended to achieve? These can be very difficult questions to address in fairly evaluating fees among different communities. As such, the comparability of our fees to other communities should be one factor among many that is considered in setting City fees. 14 CAC REVIEW OF NEW PROGRAM EFFORTS AND CAPITAL FACILITIES One of the three questions that the CAC was requested to address in their review of the City's long-term financial health was: ■ What programs or projects should be deferred or deleted if new or increased revenue sources are not implemented at levels sufficient to ensure the City's long-term financial health? In answering this question, the CAC requested a list of programs or projects currently under consideration that will require General Fund financing to accomplish. This listing is provided in Attachment A-1, and includes policy references for projects that have already been approved (at least in concept) by the Council along with "order of magnitude" cost estimates. At the CAC meeting of November 14, 1990, members evaluated these programs and projects using a rating scale very similar to that used by the Council in setting their goals for 1991-93: "A' (highest priority projects), "B", and "C". The results of their prioritization are provided in Attachment A-2. Projects which were rated "A" by all CAC members received an "A+" rating. 15 �.�� Attach� � New Program Efforts and Capital Facilities POLICY PROJECT ANNUAL REFERENCES COSTS COSTS Ongoing Programs and Projects Operating Programs Enhanced law enforcement programs Police 5 Year Plan $250,000 Drug education and prevention 1989-91 Financial Plan 75,000 Hazardous waste materials management 1989-91 Financial Plan 50,000 Downtown trolley 1989-91 Financial Plan 90,000 Residential street tree maintenance 1989-91 Financial Plan 60,000 Art-in-public places Public Art Policy 50,000 Historical preservation 1989-91 Financial Plan 150,000 Property tax collection and booking fee charges State Law (SB 2577) 300,000 Total operating programs 1,025,000 Ongoing capital projects Pavement overlay and chip seal maintenance Pavement Management Plan 800,000 Street improvements Ongoing Projects 200,000 Traffic signal improvements Ongoing Projects 200,000 Downtown sidewalks and bulbouts 1989-91 Financial Plan 350,000 Bikeway improvements 1989-91 Financial Plan 200,000 Park improvements Ongoing Projects 300,000 Other capital improvements as required Ongoing Projects 450,000 Total ongoing projects 2,500,000 Total ongoing programs and projects 3,525,000 Special Projects — Debt Financed Performing arts center (PAC) PAC Agreement 3,900,000 Fire station no 1 replacement land 1989-91 Financial Plan 2,600,000 construction Facilities Master Plan 2,750,000 Recreation administrative offices Facilities Master Plan 600,000 Civic center improvements Facilities Master Plan 6,500,000 Mission plaza expansion Mission Plaza Policy 1,500,000 Seismic safety improvements to city buildings Recent Seismic Analysis 1,300,000 Police station expansion (1995) Facilities Master Plan 2,200,000 Corporation yard expansion(1995) Facilities Master Plan 2,200,000 Total Special Projects 23,550,000 2,237,300 Total Projects with Cost Estimates $5,762,300 Other Projects Under Consideration — Very Rough Cost Estimates Flood management($3,000,000 to $10,000,000) Open space and parkland acquisition($1,500,000 to $20,000,000) Creek protection ($500,000 to$5,000,000) Downtown plan implementation($500,000 to$2,500,000) Laguna park improvements ($250,000 to $3,500,000) Laguna lake dredging ($2,000,000 to$10,000,000) City assistance to downtown seismic safety for privately owned property ($0 to $1,000,000) Surplus railroad right-of-way acquisition($6,000,000 to $10,000,000) Overhead utility line and pole undergrounding ($0 to $6,000,000) Circulation element improvements ($500,000 to$15,000,000) Transit system improvements ($200,000 to$800,000 ANNUALLY) Management information systems ($200,000 to$1,500,000) Emergency communication systems ($500,000 to $4,000,000) Telephone communications ($800,000 to$2,000,000) Storm drainage treatment(under consideration by the EPA; VERY EXPENSIVE) Senior citizens center($1,000,000 to $3,000,000) Community recreation center ($1,500,000 to$4,000,000) 16 �-�3 CAC Prioritization of ABChment 2 New Program Efforts and Captial Facilities "A+" Programs and Projects Enhanced law enforcement Pavement overlay and chip seal maintenance Fire Station No. 1 replacement (land and construction) "A" Programs and Projects Hazardous waste materials management Street improvements Traffic signal improvements Creek protection Seismic safety improvements to City buildings Updated circulation element improvements Bikeway improvements (A-) "B" Projects Flood management (B+) Drug abuse eduction and prevention (B+) Park improvements (B+) Recreation administration offices (B+) Open space and parkland acquisition (B+) Improvements to the City's emergency communication systems (B+) Civic Center improvements Police station expansion City assistance to private property owners for downtown seismic safety improvements Transit system improvements Improvements to the City's management information systems (MIS) Senior Citizen's Center Community recreation center Improvements to the City's telephone system Downtown sidewalks and bulbouts (B-) Performing Arts Center (B-) Corporation Yard Expansion (B-) Laguna Lake dredging (B-) "C" Projects Downtown trolley (C+) Mission Plaza expansion (C+) Residential street tree maintenance Downtown plan implementation Laguna Lake Park improvements Surplus railroad right-of-way acquisition Overhead utility line and pole undergrounding Storm drainage treatment Art-in-public places Historic preservation 17 MEMORANDUM October 1, 1990 TO: Citizen's Advisory Committee FROM: William C. Statler, Director of Finance SUBJECT: FEE REVIEW MATERIALS The following materials are provided in preparation for the CAC's next meeting scheduled for October 3, 1990: Attachment A - Cost Recovery Recommendations Based on the discussion and consensus reached at the last meeting, attached is a tentative recommendation of cost recovery goals and revenue potentials for each of the City's fees. Attachment B - Community Development Fee Survey This schedule compares the City's current rates for selected fee areas with those of comparable California communities. Attachment C - Recreation Fee Survey This schedule (C-1) compares the City's current rates for selected recreation activities with those of comparable California communities. A comprehensive listing of all current recreation fees is also provided (Attachment C-2). If you have any questions concerning the attached materials, or require additional information, please do not hesitate to contact us. 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II s` t II m o`o r t m II II Z II h h II O II a6 II II 4. a oo U II ' If Z II w w II O o o w o II If N II II Z Z Z Z II II tv II II c II II II C II m m c m c II N II 11 m p II a`0 m 'm e0 "m II W II �y II .m II o j II W II N N it II a s u+ a II LL II y N II w II o o w N u o Z II < -a. II II Z Z w Z II m y O II U II II e c e 1 oc c II N II a o, c II O O O O O o II .u. Q II Z II C II ?m ” 0 '^ w y I m ut W II Z It .O1 ([ II F II y II If V ',ia E (� II II w II w w w w w w II p u W II — — II — — — — 11 — — — — — — — — — — — — II o e C c o (j, II It II G II u O 'o O II II Z II {LI N a 0 11 LLI it LU if U II N = N C II o Q y Q F X ' y C u n a n N m < iI y E II II II N II 8 F5 � Attachment=2 CITY OF SAN LUIS OBISPO RECREATION FEES 9/28/90 I. Fees A. Tennis: $40/mo. for 2 lessons per mo. B. Jazzercise: $3/session II. Child Care A. Sun-n-Fun: $1. 50/hr. Offered: 7: 30 a.m. - 9:30 a.m. 11:45 a.m. - 5: 30 p.m. B. Little Rec'rs: $1. 00 to $1. 14/hr. III. Adult Snorts A. Adult Softball *Mens Slow Pitch: $290/10 games or $29/game/team *Womens Slow Pitch: $395/16 games or $25/game/team *Co=ed Slow Pitch: $260/12 games or $22/game/team $385/24 games or $16/game/team *Mens Fast Pitch: $435/12 games or $36/game/team *Tournaments: $145/team B. Adult Volleyball *Co-ed: $205/10 games or $21/game/team C. Adult Basketball *Mens Basketball: $290/10 games or $29/game/team IV. Facility Rental A. Field Rental *Softball Fields $5/hr: daytime $7. 5.0/hr: with lights in evening B. Park Rental *BBQ Rental: $20/day or $15 day (depending on park) *Bring BBQ into park: $10/day C. Mission Plaza Rental *$35/day general use *$50/day Broad Street Closure *$65/day Broad Street and Palm Street Closure *Adobe *$10/day *$50/week D. Jack House - All monies go to Jack House Fund *$125/day *$90/day wedding only *Table Rental: $4 . 00/table *Chair Rental: .40/chair V. Aquatics * Pool Usage: $ 1. 00/Adults . 50/Children and Seniors $15. 00/Monthly Pass * Jazzerbubbles - 1 hr. classes, $1/session * Swimming Lessons - Children $15 - 2 week session - Adults $15 - 3 week session * Diving Lessons - $18.50, 2 week session * Life Guard Certification - $20 WSI - $25 VI. Youth Snorts A. Teen Sports *Teen Volleyball -0- *Teen Basketball -0- *Teen Track -0- B. Youth Sports (4-6 Grade) *Basketball - No Charge (350 kids) *Volleyball - No Charge (40 kids) *Baseball - No Charge (150 kids) *Track - No Charge (250 kids) CO �v C. Youth Sports K-3 *Soccer - $1/session *Basketball - $1/session *Track - $1/session *Baseball - $1/session VII. Ectuipment Rental Between $2 - $10: Baseballs, basketballs, bases, volleyballs, nets and poles, horseshoes, etc. DH\rec