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02/05/2002, C-5 - 2001-03 COST ALLOCATION PLAN
Council, a-S--o I 1 acEnba Repoin C-S CITY O F SAN LUIS O B I S P O FROM: Bill Statler, Director of Finance >/Alml� Prepared By: Carolyn Dominguez, Accounting Manager (?0 SUBJECT: 2001-03 COST ALLOCATION PLAN CAO RECOMMENDATION Approve the 2001-03 Cost Allocation Plan. DISCUSSION Background The City prepares a formal Cost Allocation Plan bi-annually to identify the total cost of providing specific services in San Luis Obispo based on the two-year Financial Plan adopted by the Council. As discussed in the plan, costs in virtually all organizations—both in the private and public sectors—generally fall into two categories: 1. Direct Costs. Readily identifiable with a specific program, such as street maintenance, police protection and water service. 2. Indirect Costs. Benefit more than just one program, such as finance, human resources and legal services. In order to identify the total cost of delivering services—both direct and indirect—some methodology for determining and distributing indirect costs to direct cost programs needs to be developed, which is the purpose of the Cost Allocation Plan: to allocate indirect costs in a reasonable and consistent manner. The introduction to the accompanying 2001-03 Cost Allocation Plan fully sets forth its purpose as well as the methodology used in allocating indirect costs to direct cost programs. The basic methodology used to prepare the plan has not changed since the Council approved the 1999-01 Cost Allocation Plan in January 2000. Uses of the Cost Allocation Plan Enterprise Fund Reimbursements. As noted in the introduction to the Cost Allocation Plan, one of its key uses is to determine the level of General Fund support to the enterprise funds, and to establish appropriate reimbursement amounts. The following summarizes the level of enterprise fund reimbursements calculated for 2001-02. In total, these amounts are somewhat higher than budgeted estimates, reflecting a 5.5%increase($151,200)from the 2001-03 Financial Plan: CS Council Agenda Report-2001-03 Cost Allocation Plan Page 2 2001-02 Reimbursement Transfers —C3udget Actual Variance Water 1,151,300 1,104,500 (46,800) Sewer 819,000 986,400 167,400 Parking 284,900 313,200 28,300 Transit 277,800 270,800 (7,000) Golf 107,600 113,700 6,100 Whale Rock 1 75,900 1 79,100 3,200 Total $ 2,716,500 $ 2,867 700 $ 151,200 While individual fund differences can be attributed to a wide range of changes, including increases in the operating budgets of both direct and indirect programs, key differences from the 1999-01 Cost Allocation Plan are summarized below, which account for 95% of the change: DescriptionFund Change . Water Fund i Decrease in Facility Use(Relocation from 955 Morro to (31,100) 879 Morro). ■ Decrease in General Finance support. (16,900) Sewer Fund ■ Increase in Engineering CIP Mgt support. 99,200 ■ Increase in GeoData Services support. 11,000 ■ The relative increase in Wastewater operating budget 28,800 results in a larger allocation of indirect costs from several areas that are allocated based on this factor. ■ Increase in Building Maintenance support. 15,600 Parking Fund a Increase in Council and City Clerk support. 18,900 E Increase in Engineering CIP Mgt support. 9,700 ■ Increase in Information Systems support. 5,300 ■ First time allocation for"SNAP" parking enforcement. 3,500 Total 144,000 Provided in Attachment A is a detailed example of how the Cost Allocation Plan works using the Golf Fund as an example. Grant Administration. Recovering indirect costs related to administering grant programs is another key use of the Cost Allocation Plan. Under federal cost accounting guidelines (Circular OMB A-133), the indirect cost rate established under our Cost Allocation Plan (36.6% for 2001-03) can be used in recovering administration, legal, accounting, human resources, building maintenance and similar indirect costs that are incurred in delivering grant program services. For example, if we have identified$100,000 in direct grant program costs, we are allowed to recover up to $36,600 for the indirect costs we will also incur. We have already successfully used the Cost Allocation Plan for two key grant programs: Council Agenda Report-2001-03 Cost Allocation Plan Page 3 1. Transit System. The U.S. Department of Transportation, Federal Transit Administration (FTA), reviewed and approved the 1993-95 Cost Allocation Plan in July 1995. The FTA approval is valid until there is a change in our accounting system, or the plan varies significantly from the rates approved in July 1995. No significant changes since then have been made. 2. CDBG Program Under CDBG program guidelines, we are eligible for indirect cost recovery of up to 25%of direct program costs(or 20%of total program costs). The Cost Allocation Plan is one element of support for this level of indirect cost recovery. Labor Rates. The information provided in the Cost Allocation Plan is also used as one of five cost factors in setting full-cost labor rates for City staff services. The plan includes schedules that set forth labor rates for each of the City's regular positions by functional area (public safety, public utilities, transportation, leisure, cultural & social services, community development and general government). As reflected in these schedules, in addition to direct salary costs, there are other significant cost components that should be considered in determining the total hourly cost of staff services, including: 1. Annual Salary. Generally based on the top of the salary range for each position (80% of all City employees are at the top of their salary range). 2. Benefits. Retirement, workers' compensation, Medicare, unemployment, group insurance and other paid benefits. 3. Productive Hours. Annual regular hours (generally 2,080, except for sworn fire staff at 2,912 hours annually) less vacation, sick leave,holidays and break hours. 4. Citywide Indirect Costs. As set in the Cost Allocation Plan, services such as legal, accounting,human resources, insurance and building maintenance. 5. Departmental and Program Administration and Support Costs. Support costs internal to the operating departments (like records and dispatch in the Police Department) that are not allocated as part of the Cost Allocation Plan. The introduction to the labor rates section of the plan fully describes the methodology used in determining hourly labor rates. FISCAL IMPACT As noted above, the 2001-03 Cost Allocation Plan results in a 5.5% increase in reimbursement transfers to the General Fund of$151,200 in 2001-02. Of this amount, the increased allocation for the Golf Fund ($6,100) will need to be backfilled by the General Fund as an operating transfer, resulting in a net increase in General Fund reimbursement transfers of $145,100. For 2002-03, these reimbursements will be adjusted by 3%, which is consistent with the cost-of-living factors C s`3 , Council Agenda Report-2001-03 Cost Allocation Plan Page 4 used in preparing the 2001-03 Financial Plan. If approved by the Council as part of the 2001-03 Cost Allocation Plan, the revised reimbursements will be reflected in the Mid-Year Budget Review scheduled for Council consideration on February 26,2002. Impact of Proposed Storm Water Enterprise Fund As part of the 2001-03 Financial Plan, the Council conceptually approved forming a new Storm Water Enterprise Fund, effective for 2002-03. Formal Council approval of this concept and detailed implementation steps—along with proposed costs, revenues and rates for 2002-03—is scheduled for Council consideration on February 26, 2002. Since this fund does not yet exist, it is not reflected in this Cost Allocation Plan. However, if the Council approves this new fund for 2002-03, we plan to use the City's overall indirect cost rate of 36.6%in establishing a reimbursement transfer to the General Fund. Additionally, the Storm Water Fund will bear its fair share of the cost of utility billing, which is now allocated solely to the Water Fund (67%) and Sewer Fund (33%). Based on its similarity to the Sewer Fund's rate structure, we plan on sharing the cost currently allocated to the Sewer Fund evenly between the Sewer Fund and Storm Water Fund (or 16.5% each). Under this proposed approach,the Water Fund allocation will remain unchanged.. At this time, we expect that this will result in a reduced allocation to the Sewer Fund of about $47,000 in 2002-03. Since this reduced allocation will be picked-up by the Storm Water Fund, there will be no net changes in General Fund reimbursements for utility billing. This is because we do not expect any significant ongoing cost increases in adding this additional service to our utility bills at this time, so the "denominator" (the cost of utility billing) will remain same. However, the benefit allocations (the "numerator") will change; and at this time, we see the Sewer Fund as the primary beneficiary in this change in cost apportionment. ATTACHMENT Golf Fund Cost Allocation Example ENCLOSURE 2001-03 Cost Allocation Plan G:Cost Allocation Plan/2001-03/Council Agenda Report ATTACHMENT 2001-03 cost allocation plan EXAMPLE- GOLF FUND ProgramIndirect Cost Base of Allocation Indirect Cost % Allocated Cost Allocated i Legislation&,Policy(Council) Council Agenda Items 141,500 0.4% 600 General Administration City Administration Operating Budget(Work Load 496,400 0.8% 4,200 Public Works Admin Work Load Analysis 563,300 0.0% Engineering CIP Mgt Work Load Analysis 969,000 0.0% Transportation Planning Work Load Analysis 313,600 0.0% Parks&Recreation Admin Work Load Analysis 290,300 15.0% 43,500 Legal Services(City Anomey) Operating Budget 331,500 1.0% 3,400 City Clerk Services Council Agenda Items 402,800 0.4% 1,700 Human Resource Administration Full-Time Equivalent Staffing 619,000 1.7% 10,400 Risk Management Full-Time Equivalent Staffing 703,800 1.7% 12,000 Financial Administration General Finance Operating Budget 640,700 1.0% 6,700 Payroll Full-Time Equivalent Staffing 128,100 1.7% 2,200 Utility Billing Water&Sewer Fund 273,900 0.0% Business Tax/TOT Billing General Fund Operating Budget 101,600 0.0% Information Systems Citywide Support Assigned Workstations 852,800 0.5% 3,900 Financial Applications Operating Budget 87,300 1.0% 900 GeoData Services Work Load Analysis 254,000 0.0% Radio Communications Services Radios Assigned Equipment 91,200 0.0% Cell Phones Assigned Equipment 35,200 0.0% Pagers Assigned Equipment 28,500 0.0% Support Services Telephones Assigned Telephones 157,700 0.5% 800 Copier Maintenance Operating Budget 30,500 1.0% 300 Postage Operating Budget 43,900 1.4% 600 Ventures&Contingencies General Fund FTE's 95,000 0.0% Other Support Services Operating Budget 21,900 0.9% 200 Buildings&Equipment Building Maintenance Assigned Square Footage 720,500 0.5% 3,600 Vehicle Maintenance Assigned Vehicle Value 544,000 1.7% 9,500 General Fund Facilities Use Assigned Space 3,068,900 0.3% 9,200 General Fund Equip Use lAssigned Equipment 1 395,000 1 0.0% TOTAL 1 $ 12 401900 1 0.9% $ 113,70d Similar summaries for all direct cost programs are provided on pages 6 through 11 of the Cost Allocation Plan. The Golf Fund accounts for 1.0% of direct program costs, compared with receiving 0.9% of allocated indirect costs. The largest indirect cost allocation-department administration ($43,500)-accounts for about one-third of the total indirect costs allocated in this example. We believe this shows that the Cost Allocation Plan provides a "reasonable" basis for allocating indirect costs-which is its purpose: to identify indirect costs,and to allocate them to direct programs in a logical and consistent manner. C -� 1 N �Q i V 1 1 1 ' NcMItTv1 �c I- 00 C\ CD NM "It v') V t" Q\ O NM 7 � N N N N N N N N en en fM M M M M M m Ile 't � ItT 'V C 0. ' T C U O y h CO rz lu •� U � O G C pup.� C u d ., Q W v = F `nv� d E o > o � 0 co ppC v o o = C € cAo U . aU0: aFU0, cC70. 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