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HomeMy WebLinkAbout30-Finance CITY OF SAN BERNARDINO - REQUEST FOR COUNCIL ACTION From: Barbara Pachon, Subject: Receive and File the Full Cost Director of Finance Allocation Plan and the Right of Way Study and Authorize Finance to Begin Implementation. Dept: Finance 0 R I G I N' A L Date: August 1, 2011 Council Meeting Date: August 15, 2011 Synopsis of Previous Council action: April 22, 2010 Budget Workshop-Mayor and Council directed the City Manager to do additional research regarding the possibility of increasing the General Fund transfer from the Water Fund, Sewer Fund and Refuse Fund. June 15, 2010 Council meeting to discuss FY 2010-2011 Budget. June 30, 2010 Council adopted the 1 FY 2010-11 Budget and directed staff to prepare budget documents. Also authorized City Manager to proceed with a Cost Allocation and Right of Way Study to explore feasibility of increasing General Fund transfers from Water, IWM, and Sewer Funds. Recommended motion: Receive and file the Full Cost Allocation Plan and the Right of Way Study and authorize Finance to begin implementation. ignature Contact person: Barbara Pachon, Director of Finance Phone : Ext. 5242 Supporting data attached: Ward: FUNDING REQUIREMENTS: Amount: Net Cost -0- Source: (Acct. No.) (Acct Description) Finance: Council Notes: v1duSL # !�dl Agenda Item No. � /e c '41e0 � 6 CITY OF SAN BERNARDINO - REQUEST FOR COUNCIL ACTION STAFF REPORT SUBJECT Receive and file the Full Cost Allocation Plan and the Right of Way Study and authorize Finance to begin implementation. BACKGROUND At the April 22, 2010 Budget Workshop, the Mayor and Common Council directed the City Manager to do additional research and present implementation plans for a series of budget balancing measures that included revenue enhancements. One such measure was the possibility of increasing the current transfers from the Water, Sewer, and Integrated Waste Management(IWM)Funds to the General Fund. At the June 30, 2010, Budget Workshop,the City Manager was authorized to complete a full Cost Allocation Plan (CAP)to explore the feasibility of being able to increase all utility transfers to 15 percent. A Right-of-Way Study(ROW)was also completed in conjunction with the CAP to determine an appropriate rental fee to be charged for use of the City's right-of-way by Water and Sewer utilities. Cost Allocation Plan (CAP) The primary objective of a CAP is to spread costs from central support departments such as Mayor, Council, City Clerk, City Attorney, Finance, Police,Fire,Human Resources, etc. to those departments that receive services in support of their operations. The CAP was compiled in accordance with Generally Accepted Accounting Principles and is also based on many of the methods of indirect cost allocation as defined by the federal Office of Management and Budget's (OMB) Circular A-87. The major principles used in the plan include: charges are necessary and reasonable,reflective of benefit received, and the allocation bases relates to the benefit received. In 1996,the voters enacted Proposition 218, which governs the process by which local governments can impose or increase property-related fees and charges. Any transfers from utility funds must also comply with restrictions pursuant to this Proposition. To comply with the provisions of Proposition 218, the City must provide a detailed justification for the transfers from each utility in a CAP. Matrix Consulting Group prepared the CAP for the City of San Bernardino over the last year. Steps followed to complete the report include: identify and meet with all central support departments, determine the major services provided by each department, establish the optimal allocation bases to be used for each function, identify and collect the source data and statistics to support the allocations, populate the analytical model and calculate the results. Once preliminary results were obtained, several meetings were held with departments to review the results and determine if any adjustments were needed. Several meetings were held with City Staff, Water Department, and the City Attorney's Office. Based on their input and recommendations, there were several clarifications and adjustments to the data and results. The attached final CAP document provides the details of all the department 2 allocations and the bases used for each of the allocations. It should be noted however, that the allocated costs were calculated based on the "best available data and methodology at this time". City and Water Department Staff have agreed to continue meeting to further refine both the data and methodology and any necessary adjustments for future years will be brought back to the City Council for approval. Right-of-Way Study (ROW) The purpose of the ROW is to establish a rental fee for use of the City's Right-of-Way by the utilities. Both Water and Sewer Collection have underground infrastructure in the City's right-of-way area. Using standard methods to calculate the value of the public right-of-way and an inventory of the space occupied by each utility, a reasonable rental fee was calculated. It should be noted that a discount factor of 30% of the adjacent parcel's assessed value was used in the calculations to recognize the limited uses of the subsurface space of the ROW which is used by the utilities. The attached final ROW report provides the detail analysis used in calculating the ROW fees. FINANCIAL IMPCAT In summary, the final amount to be received by the General Fund from the utility funds per the CAP/ROW is $7,550,400, which is $1,592,500 more than the base amount the City's General Fund was receiving prior to the CAP/ROW. After implementation of the City General Fund paying Water for the full cost of Water Service,which is estimated at $1,047,000, there will be a net gain to the General Fund of$545,500. Attachment 1 provides a summary of the financial impact to the City's General Fund from the CAP/ ROW. As indicated in Column A, the City was receiving a total of$5,957,900 as the base benchmark amount from all the utilities prior to the CAP/ROW. The $6,233,700 in Column B provides the estimated additional amount that was originally anticipated to be received from the CAP/ROW. Column C is the sum total of Column A+B and is the total amount that was anticipated to be received in the FY 10-11 budget. As indicated in Column F, the amount now anticipated to be received from the CAP/ROW is only$7,550,400, which is about $4.6 million less than originally anticipated. As indicated in the FY 2010-2011 Mid-Year report and during the FY 11-12 budget process, the City's Sales Tax revenues are about $2.7 million more than originally anticipated which helped offset the lower amount to be received from the CAP/ROW. The remaining loss of about $2 million from the CAP/ROW reduced the estimated fund balance of$4 million at Mid-Year to $2 million. Attachment 2 reflects the estimated impacts to the utility funds and the user rates. As indicated in Column E, it is anticipated that the IWM will have about a$54,000 additional cost to incur, which has been included in the FY 10-11 and FY 11-12 budgets, so no rate adjustment would result from the CAP/ROW implementation. However, as noted in the FY 2011-2012 budget workshops,both the IWM and the City Sewer Collection fund are in the process of completing a rate analysis and a sewer master plan, which could result in rate adjustment recommendations. It is anticipated that these studies will be completed at the end of calendar 2011 and will be presented to the Mayor and Council. The Water Fund would actually have a net gain of just over$1.2 million when the CAP/ROW is implemented, and the City, EDA, and the Assessment Districts begin paying their full Water service costs. Both the City Manager's Office and the General Manager of the Water Department have agreed to form a Water Conservation Committee that will be tasked with finding ways to conserve water 3 i usage in the City, improve communication in water emergency situations, and establish a plan to implement payment of all Water service costs as required under Proposition 218. Although the City Sewer collection will have a net cost in FY 2010-2011 of just over$1.3 million as reflected in Attachment 2, Column E, there is no immediate rate adjustment needed because fund balance is available to cover this increased cost. Sewer Treatment(Attachment 2) has no net impact since it will continue to pay the same original base amount for FY 2010-2011. The Sewer Treatment per the CAP/ROW should actually be paying just over$1.3 million of the total Sewer costs of$2,162,400. Since the Sewer Treatment fund does not currently have funds available to pay this amount, it is proposed that these costs be phased in over a 5 year period. Attachment 3 provides the proposed schedule for phasing in the payment of these costs. In FY 2010-2011, the City Sewer Collection will pay the higher CAP/ROW costs, and each year as the Sewer Treatment increases its payment for the CAP/ROW, the cost to the Sewer Collection will decrease by a corresponding amount. By implementing a phased schedule, there will be no net increase in cost due to the CAP/ROW for sewer service. RECOMMENDATION Receive and file the Full Cost Allocation Plan and the Right of Way Study and authorize Finance to begin implementation. 4 i N n CD Y �' C ca o C fn CD CCD CD fD a :v o CD 0 o D (D W fm o ur m v' w CD 3 cD D c (D D UOi O Uwi N 000 a fD 3 ti o o 0 3 ; c c 0 Co 0 0 0 Q° a o O O O o m .60 -69 o O M n -n n ID Q m O _a , C. 0) N N N w J co -0 C7 C N Co W W J Ui c0 ; m Q C. O V W O A J O = O D O O o O O C. 3 ' n O Efl Efl O -n mW3 0n i n D N A W N O II J W Oo 0 C m o rn co N 3 C �. D 0 -� J W CO y ?' O +CD O O o O o CD C O O o 0 0 0 0 fD ---h 4A to n lD : -n D m -_n rt o -0 = � S3I p W A (Ti 07 W N C" C OC W 0 00 O W N CO G O. 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The purpose of the engagement is to generate additional sources of revenue that can result in improved maintenance of the public right-of-way (ROW). Adjacent Land Value Linear Foot Fee Rental fees based on a linear foot fee rely upon three factors to calculate the rental rate: 1) the basis for valuing the public right-of-way; 2) an inventory of the amount of ROW space actually occupied by utility companies, and 3) the rate of return. Adjacent property value is a quantifiable approach to value public right- of-way and establish the ROW rental fee. The assessed value of adjacent property (land only) per square foot is assigned to the related right-of-way. This method was designed based on a fair and reasonable methodology for a rental rate using the City's most current data available. Rental Fee Formula The annual rental fee is calculated by taking the ROW area occupied times the assessed value per square foot of the adjacent property (land only) times an adjustment for use of the property times a rate of return. The adjacent land value was obtained by the City's Real Property Division. The total land value is $3,163,818,211 as of January 20, 2011. The total acres of land within the City are 21,500.38 acres. The adjacent property value methodology uses the City's land value of $3,163,818,211 to determine the average value per square feet of adjacent property. The land value is divided by the total square feet of land, 936,556,470, to arrive at the average value of property in the City of$3.38 per square foot. The assessed value per square feet is multiplied by a discount factor and by a rate of return to arrive at a rental fee of $0.06/sq. ft. for subsurface space only (conduit and buried space) occupied by water and sewer utilities. A discount factor is used to recognize the limitations imposed in using the ROW that affect the value of the ROW. In the adjacent property method, the methodology starts by assigning a value to the ROW the same as the adjacent property value. However, the ROW value is less than the adjacent property due to the limits that apply to using the ROW. The full public ROW value represents 85% of the adjacent parcel's assessed value. The fee paid for the use of only aerial space represents a portion of the full ROW and is valued at 72.25% of the adjacent parcel's assessed value. Most cities view subsurface space as being the most limited part of the ROW and as having the least relative value. This value assumes that all pavement costs will be restored to original condition. Therefore, ROW value for only subsurface ROW use represents 30% of the Page 2 of 7 adjacent parcel. The discount factors used in this model, (i.e., 30% for subsurface only,) mirror the discounts used by the City of Dallas, Texas. These discount factors could be adjusted for the City, to discourage excessive utility street cuts, encourage co- location of facilities and encourage use of trenchless technology. Table 1 Adjacent Pro erty Value Based Rental Formula Underground Description Surface ROW (Conduit & Aerial Buried) Total Land in Sq. Ft. 936,556,470 936,556,470 936,556,470 (21,500.3781 acres) Total Land Value $3,163,818,211 $ 3,163,818,211 $3,163,818,211 Average Value / Sq Ft. $ 3.38 $ 3.38 $ 3.38 Times Discount Factor 85% 30% 72.25% Times Rate of Return 5.9% 5.9% 5.9% Rental Fee Per Square Foot $0.17 $0.061 $0.14 Links ROW value to current adjacent property value. The adjacent property value method ties the value of the ROW to adjacent property with an appropriate discount for limits on its use. It also uses property valuation data that is readily available and is kept current by the City. Reasonableness. The rental fee is directly related to the occupied space in the ROW. Utilities pay a rental fee based on the value of the ROW and the amount of space occupied. The more a utility uses, the more it pays. (i.e., You pay for what you occupy.) Fair return on investment. This methodology produces a rental fee based on current property values (land only), with appropriate discounts for limits on ROW property, and with a rate of return based on government investments. Taxpayers and the City receive a fair return on their investment in the right-of-way and do not subsidize public utilities. Ease of adjustment. Some cities' franchise and license agreements include annual fee adjustment provisions. Cities use these provisions to make annual adjustments to rental fees based on year to year changes in the Consumer Price Index or other relevant indexes. Making annual fee adjustments allows rental income to keep pace with inflation and market rental fees. Flexible formula. The methodology's formula contains four variables. If the data is available, the calculation is straightforward. The City can easily adjust the Page 3 of 7 discount factor and rate of return variables to support economic development and street landscaping beautification policies. Complexity The methodology produces three rental fee rates (aerial, surface and underground) for different uses of the right-of-way: For illustration purposes, 1- 4 foot and 3 foot widths were assumed; however, this may not reflect the utility's actual use of the ROW. Dependence upon utility inventory to determine occupancy in ROW. This method is dependent on the utility having complete and accurate records of the location and amount of its facilities in the public ROW. Additionally, the inventory will need to be updated annually to ensure that the utility pays for all of its occupied use of the ROW. Use of City-wide average rental fee. The adjacent property model illustrated in this report established an average City-wide rental fee per square square foot to apply to ROW based on the type of use (i.e., subsurface, aerial, etc.). When the City's GIS system becomes fully operational with property parcels, tax assessments and utility facility locations, the City will be able to differentiate the rental fee rate by City area or specific location. In summary, the adjacent property value method, while not the easiest method to use to determine a rental fee, has other merits that make it an attractive and viable option: a quantifiable yet flexible formula, a methodology based on occupied ROW of the utility, and one in which the final rental fee appears fair and reasonable. CONCLUSION Using a linear foot fee based on the adjacent property value model is a reasonable approach to value the public right-of-way. The linear foot fee model provides a reasonable approach and methodology to value the public ROW. The rationale for this conclusion is as follows. • There is no perfect method. The gross receipts is a common method used to compensate municipalities for use of the right-of-way, but there are some recent problems associated with it (i.e., applicability of the fee, interpretation of gross receipts, impact of deregulation, and tracking where a sale transaction occurs). The linear foot fee method is widely used by local governments, does not have the same problems as the gross receipts method, but it has not been broadly applied as proposed in the model. • The linear foot fee calculation tends to be more complex, as the compensation components include three factors: 1) determining the basis of ROW valuation, 2) establishing a rate of return and 3) conducting an Page 4 of 7 inventory of ROW space occupied. • The linear foot fee is directly associated with the actual ROW space occupied. • ROW valuation is based on the value of the adjacent property (land only) in the City. • It reflects what the public utilities might pay in rent if they acquired use of private property. • The rental fee is linked with a reasonable value of the public right-of-way. • The value of the ROW is tied to property values that are reassessed on a regular basis, ensuring that ROW values are adjusted with current market value and that the City receives current market rent. • Taxpayers would receive a fair return on their investment in the public right- of-way and not subsidize public utilities and other occupants. The rental fees based on the amount and type of ROW space occupied are fair and reasonable to all users of the ROW. Using 2011 City land values, an assumed 1-4 foot width space for underground and aerial occupancy and adjustments for use of ROW, the adjacent land value model produces the following recommended rental rate for water and sewer utilities: $0.06 / linear ft. for underground facilities only, Applying the rental fees to the occupant's use of the right-of-way is initially a complex and somewhat burdensome process, but in the long run is a fairer, more accurate valuation of the right-of way occupied by utilities. The inventory must also be updated periodically based on changes in the amount of facilities in the ROW. To simplify this situation, the City should consider establishing specific dates when the factors used in the formula are set (i.e., utility inventory and property values) and rental fees are calculated and fixed. These fixed fees remain in place until the next revision date. A reasonable time is the "as of date in which property values are established. SUMMARY OF RECOMMENDATIONS • That the City adopt an adjacent land value linear foot fee to value the public ROW and determine rental fees which will be assessed to the water and sewer utilities based on their facilities' occupied space in the public ROW. Page 5 of 7 This methodology would appear to result in fair and reasonable fees that are competitively neutral. • That the City implement rules and regulations that define key terms, specify who the rental fee applies to, what uses of the ROW are included and which facilities are subject to the rental fee. • That the City reevaluate assumptions used in the adjacent property value model after the City has had two years experience with the model, and compare it to the latest inventory of the utility's actual use of the ROW. Page 6 of 7 i k I r I i i City of San Bernardino Right-Of-Way Analysis i i I San Bernardino Total square feet of land 936,556,470*REVISED 4/21/11 Total value-land only $3,163,818,211 Cost per Sq.Ft. $3.38 j %of R-O-W Value for Subsurface' 30% Base Rate(Per Linear Foot) $0.06 Rate of Return 5.9% Notes: 'discount Factor used recognizes limits imposed in R-O-W use 'based on current Municipal bond rate Manholes r1=2.5,r2= Water lines (per Sewer lines (per Water Sewer Water Sewer Water Sewer Water Sewer 1.5, h-6;total Pipeline Size linear feet) linear feet) 1 ft wide 1 ft wide 2 ft wide 2 ft wide 3 ft wide 3 ft wide 4 ft wide 4 It wide surf area(feet) 0-4" 370,519 2,121 370,519 2,121 4.5-6" 875,878 33,915 875,878 33,915 7-8" 837,293 1,816,264 837,293 1,816,264 10" 16,229 99,135 16,229 99,135 12" 689,001 116,078 689,001 116,078 14" 15,643 5,443 15,643 5,443 15-16" 210,839 93,127 210,839 93,127 18" 643 50,294 643 50,294 20" 91,529 870 91,529 870 21-22" 8,191 50,772 1 8,1911 50,772 24" 83,719 34,679 83,719 34,679 26" 2,728 0 2,728 0 27-28" 3,879 46,160 3,879 46,160 30" 44,162 15,248 44,162 15,248 r" 39,373 26,922 39,373 26,922 " 6,322 3,987 6,322 3,987 6,820 20,701 6,820 20,701 oles 1 8,056 1 103 3,302,768 2,415,716 1,246,397 36,036 1,769,648 2,180,341 234,208 147,729 52,515 51,610 3,539,296 4,360,682 702,624 443,187 210,060 206,440 830,896 a� ,1o'` '3 foot wide average 3,302,768 2,415,716 3 3 Total: Water Sewer 9,908,304 7,247,148 $1,075,459 $592,448 $483,011 $592,448 $433,329 $49,682 Page 7 of 7 n O � mn D O Z la) D bo O o C ooDo cQ o o v ° o =^ D rnom Q_ N Woo"N U' � AWN Ut W O v O r O � 70 N Z ° D o 3 E } E t c � D m x X o n D cn r < � m D m N m N c r n y O n m m z > c n Z z m ° n DU' z Z -- D X p0 ° m m < 0 m n ° O m D Z i rn z z -� z c to -4 L" CD ( $ ' \ _0 / Z / F 0 0 -0 3 2. — o k � U o _ R \ ƒ C m ® ° (D / / \ / 2 3 y n o 2 \ \ \ k 2 %_. /. / g o / m q k % J $ � @ R \ 0-S w 0 X E \ ° n q \ / 2 ° / 2 / o o — 4 m m I o = O m 2 0 § c 6 J ¥ m o \ 0 2 \ o %. 0 7 / 9 5 n } / \ 2 \ o \' n g I — / S $ k ® 5 \ w k 2 0 - \ c j I g _ -n / * 2 cn 3 § 7 W- 5. 3 \ _ o m @ q \ / o _ CL :3 o 0- m CD CD \_ \ j \ ° 0 7 C 7 q � 2 \ 0 0 b S /\ \ 0 0 (D \ D \ - � - y CD o =_ 0 CD I ® ? _ 0- 0 -0 a D - J O / w_ _ƒ I � y / k m \ — _0 0 3 6 6 _ CD / y 7 ƒ m T. § o § k < ~ D D 0 0 5 CL) 0 _ - e \ T _ ° / ° o � I = R 3 § 2 \ cc ? = y ƒ I I \ § n _ _ ƒ / \ 0 CL CL m k $ / ƒ C ( cn m / 2 5- = A § \ :3 0- U) ° f e y � � I C o _ 0 ? y C = S e = / \ \ n / /\ \ CD (D= m 7 % zr o ° � _ \ \ o £ 2 = 0 /. § 0 0 # o < 0 @ _0 6 7 0 2 3 M. q / 5 / D s F ^ Z n O O zr D `V l O Q � � (D 5 n k (D CD COD N O O Q y 0 0 n � c0 _� p fn 2 'ri o ° - n p Z1 '" cn O O O (D O (D c �' n Q- ((D (D a ° 3 -0 n cn v o °' CD v o cn � ° a 3 p (n O m (<D o zt G7 o _0 ° o m o m CD cn CD o C7 m 3 N n a- °- tb a O � n o o m v cn v n M Z Zr _ D 3 cn ° o^ a Q- 0 o a o (D O o D o 0 o ° r+ < �, D D oo � m o 'n CD o m �, (D _ Q v Q z p O o cD cn cD v ° m C o � m Z5 O O --1- m (D = o CD (n ° o v v v (n CD cn Q o �. o v � � m cn v cn ° m CD cn `n ° v < ° ni cn (n 3 m m o v m o g (D < c°o m o (D o :7 D cn 3 v 0 m -a -n ° -h o O c O cn C Q r D l<(D cnN a m cn v o m Q m =3 v CD D" cn o o v v c v n o �? cD �' O v c m n Ln. m < 0° ° (D CD v �? cD ' D CD o v m c/) ° cQ 00 ° -a °° o m v (D o --4 x _ �. v cn (n -O -O O O 15. 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CL n n c 0 0 (n N C rt S c O fD C co n a a fD c -a ID F 04 0 0 0 0 0 a 0 (D (n(o(0 (o o -h a C4 W mm � ((o Ion C y O O n N (D O 3 O -h O �D fA pl '* of rt G) (D 3 m 90 D a 3 3 Cl) 00 =r (D cD r* c a 000 to v>ii �ti < 0 1D (D (O (D N W W W W 0 0 N co cn ^y � g c cD �°^, m 00 GD 0 0 — 0 o n a m m "M N (Q y' N CA CD m N 3 CD 0- o f n CD w m o o C C7 3 C M a y 0 O O0 D D 0 0 m co 0 0 CL 0 0 O C7 a CD O C) o O M c G) rt 0 Ca 1 fA fA N � a _ O O C rt'a W O n _ �, D I i0 i0 0� = = 0 3 m cW0 CL c 0 Q � 9• a' 0 0 03CD ~' o CD v � N y rt C'7 N rt W M G T y fA 89 D O O O t0 f0 (0 O 7 CO) O n O 7 d a 0 m 0 no :r (D CD rt o r °_'• �„ fA a „ Ow N CC] O O n p O N O O O W W cD ee ... a \ $ � Ef a > en Ul 5 � ƒ > Q@ _ \2 -0 C \ \0 § = E = gi o ] 0 \ c / (1) \ 0 / » ee \ \2 e =, @ / 2 £ = a ee\ � �2 \ \/ � P � CITY OF SAN BERNARDINO INTEROFFICE MEMORANDUM TO: James F. Penman City Attorney FROM: Henry Empeno, Jr. Sr. Deputy City Attorney DATE: August 12, 2011 RE: Master Services MOU and Cost Allocation Plan CC: Diane C. Roth, Sr. Assistant City Attorney; Stephanie D. Easland, Sr. Assistant City Attorney On the August 15, 2011 Council Meeting Agenda are the following two related items: 18.Resolution of the Mayor and Common Council of the City of San Bernardino authorizing the City Manager to execute a Master Services Memorandum of Understanding with the Water Department for provision of City services for Fiscal Year 2010/2011 and 2011/2012. 21. Full Cost Allocation Plan Report and Right of Way Study. I recommend that the Mayor and Council continue both of these items to the September 6, 2011 Council meeting because of the legal issues raised in the attached Memorandum from Stacey R Aldstadt, General Manager of the Water Department to Mayor Patrick Morris regarding the "Full Cost Allocation Plan Report for FY 2010-11". Ms. Aldstadt correctly outlines several Proposition 218 issues which must be resolved before the Mayor and Council takes action on both of these items. Ms. Aldstadt will be on vacation out of the state and will not attend the August 15, 2011 Council meeting. If the Mayor and Council proceeds to approve the proposed Master Services MOU at the August 15, 2011 Council Meeting,the Board of Water Commissioners would still have to consider this proposed agreement at their meeting on September 6, 2011 before the agreement can be implemented. FAEMPENO\Water\MSA MOU.wpd Q Ph/ CITY OF SAN BERNARDINO MUNICIPAL WATER DEPARTMENT TO: Mayor Patrick Morris FROM: Stacey R. Aldstadt,General Manager, Water Department SUBJECT: "FULL COST ALLOCATION PLAN REPORT for FY 2010-11" DATE: August 10,2011 COPIES: Board of Water Commissioners; Henry Empeno, Senior Deputy City Attorney; Don Shackelford, Water Department Finance; Robin Ohama, Deputy General Manager, Water Department; City Manager Charles McNeely; City Finance Director Barbara Pachon ATTACHMENT: "City of San Bernardino Municipal Water Department Cost Allocation Plan Review—August 4, 2011" On Friday, August 5, 2011,Art Griffith (SAIL) and I again met with representatives from the City to discuss the Matrix Cost Allocation Plan (CAP). Also present at the meeting were you,Jim Morris, Gary Goelitz and Greta Davis (Matrix), Andrea Travis-Miller,Barbara Pachon,and Diane Roth. This meetingwas the City's response to my July 5, 2011 memorandum to Henry Empefio. While the two sides have been debating the merits of the Matrix numbers,the Master Services Agreement (MSA) for FY 2010/2011 (effective for the period of time between July 1,2010 and June 30, 2011 —lastyear's MSA) has been continued for approval many times. The Board of Water Commissioners approved the FY 2010/2011 MSA earlier this year, before the Matrix CAP was provided to the Department. At the August 5m meeting,we were provided with a nine-page table showing the City's response to my memorandum dated July 5, 2011, a one-page table entitled "Estimated Impacts on Utility Funds and Rates Cost Allocation/Right of Way Study Analysis, and a one-page table entitled "Sewer Funds 5 Year Phased in Cost Adjustments Cost Allocation/Right of Way Analysis." We certainly appreciate the time and effort expended in the City's response and, as you envisioned, look forward to setting aside differences of opinion regarding the CAP. However,in light of the very serious consequences of failing to comply with the requirements of Proposition 218 (now codified as California Constitution Articles XIII C and D), it is incumbent upon the Department to continue to clarify its position regarding the methodology used by Matrix to allocate costs. This is true because,in order to withstand a challenge based on Proposition 218,the Department (and the City) must be prepared to demonstrate that water and sewer treatment rates do not exceed the funds j t S s E "FULL COST ALLOCATION PLAN REPORT for FY 2010-11" August 11, 2011 Page 2 required to provide the property related service. Howard Jarvis Taxpgyers Assn., et al. V. City of Fresno(2005) 127 Cal. App.4`h 914. Moreover, the services allocated to the Department cannot be "general governmental services including, but not limited to, police, fire,ambulance or library services,where the service is available to the public at large in substantially the same manner as it is to property owners." Howard Jarvis Taxpayers Assn., supra, 127 Cal. App.4`s at p.923, citations omitted. At the August 5" meeting, at my request, and because we had not had the opportunity to review it before the meeting,we did not review the item-by-item response provided to the Department's July 5, 2011 memorandum. Rather, we focused on the "Estimated Impacts on Utility Funds" spreadsheet. It appeared, from the spreadsheet, that the Water Fund would be asked to contribute $3,353,800, but would then be credited with $1,256,900 for the cost of water used by the City (a cost that has, to date, been zero up to the City's negotiated baseline). The $3,353,800 does not include the costs to be paid to the IT department.The Sewer Fund would be asked to contribute $500,000, or the same amount it has been contributing absent a CAP. The City insisted that time was of the essence and desired adoption of the FY 2010/2011 Master Services Agreement at the August 15,2011 council meeting. The City indicated it would provide the Department with a revised Master Services Agreement by Monday, August 8,2011,with the plan that the Department could review the language and make any changes in time for the August 15"'council meeting. The Department asked for justification for the contribution from the Sewer Fund and we were then given the "Sewer Funds 5 Year Phased in Cost Adjustments" spreadsheet,which indicated an inmase to the allocation for"Water Sewer Treatment" over the next five years. The increase results in an allocation by FY 2015-2016 of$1,331,900. The spreadsheet did not explain how the allocation had been made. Again, that justification was to be provided in time to review it, adjust it and discuss any changes before the council meeting. The Department was provided a draft staff report and a revised MSA on August 9, 2011. The justification for the sewer treatment/sewer collection allocation and increases was provided to the Department on August 10, 2011 at approximately noon. After assimilating all of the new information provided, it appears that it may not be possible to achieve fully both goals of finishing this regrettably divisive discussion and complying with Proposition 218. COST ALLOCATION PLAN FOR WATER FUND: There continue to be costs allocated to the Water Fund that are not reasonably related to the cost of service. Costs allocated "based on budget size" for the Mayor's office,the Council office, the City Manager's office (Administration and Neighborhood Services), Finance "FULL COST ALLOCATION PLAN REPORT for FY 2010-11" August 11, 2011 Page 3 (General Accounting and Purchasing) of$89,238, $58,215, $159,458 and $75,631, respectively,are based on a fundamentally flawed methodology. Matrix defends this methodology as following"financial best practices in Cost Allocation principles," but fails to account for the governmental organization differences posed by the City's Charter. It defies common sense to say that the Water Department imposes the same organizational burdens on the Mayor's office, Council office and the City Manager's office as any other department in the City(less 25% as an arbitrary reduction) because the Charter provides that these offices cannot have the same organizational involvement. Charter Section 163 provides that the Board of Water Commissioners is enpowered to "generally regulate, control, manage, renew, repair and extend the entire water system of the City." The Board of Water Commissioners executes these powers through its General Manager, who has management oversight over the functions of the Water Department. That is not the case with other city departments. The Finance department for the City does not perform any financial or accounting functions for the Water Department. As has been explained several times,the Water Department uses a cost accounting method, to track costs related to projects,as befits a utility's enterprise funds. The City does not use the same method. The City does not provide any purchasing support function to the Water Department. In fact, to make matters perfectly clear, the City's Finance Department does not provide any "support" function for the Water Department in Finance whatsoever. It is a clear misstatement of facts to say that the Water Department provides its own "supplemental support" to the City's Finance Department. Simply making the statement, as Matrix does, does not make it true. Imposition of these costs will violate the terms of Proposition 218. Additionally, allocations for Fire and Police-related costs (Fire Emergency Communication, Fire Rescue, and Police Patrol) are based on flawed or incomplete data, such that while the methodology used may be valid, the numbers are still insupportable because of bad input data. The data and methodology begs the question as to whether these services are "general governmental services,"which are not to be allocated pursuant to Howard Jarni Taxpayers Assn. We continue to maintain that the costs allocated from the Water Fund to ROW tree trimming and concrete maintenance are inflated, as set forth in the July 5,2011 letter. Nonetheless, the Water Department is prepared to accept the following cost allocation to the Water Fund for the purposes of approving the revised MSA for FY 2010/2011 (provided that the language of the revised MSA is changed to reflect a one year deal): "FULL COST ALLOCATION PLAN REPORT for FY 2010-11" August 11,2011 Page 4 MASTER SERVICES AGREEMENT (WATER FUND) CONTRIBUTION FOR F/Y 2010/2011 General Fund $3,353,800 (incl. CAP/ROW) Employee Assistance Program $10,000 AB 2766 Fund $5,200 Telephone Call Center Support $28,230 Estimated Telephone Support Fund $126,400 Estimated Worker's Compensation $412,000 IT Fund $522,267 The lease agreement between the City and the Department provides for an additional payment of$177,826. COST ALLOCATION FOR SEWER FUND: There continue to be costs allocated to the Sewer Fund that are not reasonably related to the cost of service. Costs allocated "based on budget size" for the Mayor's office, the Council office, the City Manager's office (Administration and Neighborhood Services), Finance (General Accounting and Purchasing) of$75,938, $49,539, $117,501 and $64,359, respectively,are based on the same fundamentally flawed methodology outlined above. According to the latest breakdown provided to the Department,Matrix has allocated $345,790 for Right of Way (ROW) tree trimming to the sewer treatment system. This demonstrates a misunderstanding of the physical properties of the sewer treatment system. As you know, the City owns and maintains the sewer collection system,which consists of sewer pipelines and lift stations. The Water Department owns and operates the treatment system,which is located on one large piece of land off of E Street. The Water Department maintains all of the landscaping(including tree trimming) on this piece of property. Additional treatment is provided by the tertiary treatment plant located in Colton. There is no City tree trimming attributable to the sewer treatment system, so the$345,790 figure cannot be reasonably related to the provision of sewer treatment. Further objection is made to the allocation between sewer treatment and sewer collection. The new information provided shows that Matrix has allocated much of the total $1.7 million overall sewer "general governmental" costs (e.g., Mayor's office, City Clerk, City Manager, HR, etc) to sewer treatment,rather than sewer collection. Of the$2.16 million, sewer treatment is allocated $1.33 million and sewer collection (the 510 miles, plus, pipelines and lift stations) is allocated $347,555. The City intends to maintain the allocation from the Sewer Fund for FY 2010/2011 at its current$500,000, but then intends to begin increasing the assessment over FY 2011/2012 to FY 2015/2016 to the $1.33 million number. The current City draft for adoption of the CAP and the MSA states: "FULL COST ALLOCATION PLAN REPORT for FY 2010-11" August 11,2011, Page 5 "The Sewer Treatment per the CAP/ROW should actually be paying just over$1.3 million of the total Sewer costs of$2,162,400. Since the Sewer Treatment fund does not currently have funds available to pay this amount, it is proposed that these costs be phased in over a 5 year period. Attachment 3 provides the proposed schedule for phasing in the payment of these costs. In FY 2010-2011, the City Sewer Collection will pay the higher CAP/ROW costs, and each year as the Sewer Treatment increases its payment for the CAP/ROW, the cost to the Sewer Collection will decrease by a corresponding amount. By implementing a phased schedule, there will be no net increase in cost due to the CAP/ROW for sewer service." There are several problems with this: (1) The costs for general governmental services are disproportionately attributed to sewer treatment. For example,sewer treatment is assessed $117,501 from the City Manager's office for"administration and community relations." The sewer collection system is assessed $8,272 for the same services. The explanation from Matrix is that the costs were "allocated based on budget size." That means that, because the Sewer Fund is much larger than the Sewer Collection Fund,the Sewer Fund pays more. However,again, this ignores the reality that the City Manager manages the sewer collection system, through public works, and the Water Department General Manager manages the sewer treatment system. (2) The sewer treatment facilities are regional facilities. Other municipalities (Highland and Loma Linda) are impacted by this cost allocation. (3) Because the proportionate share for sewer treatment is not based on organizational realities, the allocation violates Proposition 218. Again, the Water Department is prepared to accept the following cost allocation to the Sewer Fund for the purposes of approving the revised MSA for FY 2010/2011 (provided that the language of the revised MSA is changed to reflect a one year deal): MASTER SERVICES AGREEMENT CONTRIBUTION SEWER FUND F/Y 2010/2011 General Fund $500,000 FY 201012011 MSA The City indicates that it intends to extend the MSA for two years (FY 2010/2011 and FY 2011/2012). This is problematic in that much of the data and some of the methodology used to develop the CAP must still be discussed and refined. Arguably,although flawed, the data and methodology could be used to justify one year of cost allocations,but the Water Department does not want to approve the continued use of flawed data and poorly developed methodology. "FULL COST ALLOCATION PLAN REPORT for FY 2010-11" August 11, 2011 Page 6 With the above-outlined concerns in mind, the Water Department offers the following roadmap for consideration: First, continue adoption of the FY 2010-2011 Master Services Agreement to September 6, 2011. Edit the FY 2010-2011 MSA to reflect the following negotiated CAP numbers: MASTER SERVICES F/Y 2010/2011 General Fund incl. CAP/ROW) $3,353,800 Employee Assistance Program $10,000 AB 2766 Fund $5,200 Telephone Call Center Support $28,230 Estimated Telephone Support Fund $126,400 Estimated Worker's Compensation $412,000 IT Fund $522,267 General Fund $500,000 TOTAL $4,957,897 The FY 2010-2011 MSA should state that the allocated costs were calculated based on the "best available data and methodology at the time, but that the City and the Water Department will meet to further refine both the data and methodology." Second, bring the FY 2011-2012 Master Services Agreement to council with substantially the same numbers and with a similar caveat that the "best available data and methodology have been applied at this time. The City and the Water Department agree to meet to further refine both." Third, set up a small working group to discuss further refinement of data and methodology, with the goal to establish a multi-year Master Services Agreement reflecting future negotiations. In addition,the Water Department will be amending its Rules and Regulations,Rule 21,to eliminate the provision of free water to the City. The Department believes that these issues can be resolved with further dialogue between the parties and remains committed to doing what is best for the City, the Department and the ratepayers. Very truly yours, Stacey If Aldstadt General Manager attachment City of San Bernardino Municipal Water Department Review of August 4 Draft of Cost Allocation Plan August 10, 2011 Summary Things that Changed 1. Change in dollar amounts (sewer=sewer collection plus sewer treatment): Water Sewer CAP March 15 Draft $7,112,561 $2,824,073 CAP June 22 Draft $3,752,472 $2,093,138 CAP June 29 Draft $3,111,374 $1,880,972 CAP August 4 Draft $2,761,356 $1,679,401 Change from June 29 to August 4 ($350,018) ($201,571) CAP(August 4 Draft) $2,761,356 $1,679,401 ROW Fee(April 21 Draft) 592 44 $483,011 Total(Aug 5 meeting Attachment 2,rounded) $3,353,800 $2,162,400 2. Costs related to contents in the existing lease were removed. Implication is that lease payment is in addition to CAP payments. Reduction in water cost allocation = $113,434, reduction in sewer cost allocation= $0. 3. Some costs were removed, based on our comments that they are not related to the provision of water service (Passport Acceptance, Business Registration/TLT Collections, Special Events/Arts&Culture, Fine Arts and Cultural Affairs). Reduction in water cost allocation = $146,883, reduction in sewer cost allocation= $139,615. 4. Fire Department costs related to fire dumpsters were moved from Water to Integrated Waste. This is a change from the numbers, but not the narrative, from the 6/28 draft. Reduction in water cost allocation of$89,402. 5. Small methodology changes in applying a 25% discount to sewer as well as water for City Council support, City Manager administration, Finance general accounting, Finance purchasing. Reduction in sewer cost allocation of approximately $50,000. Things that Didn't Change The remaining methodologies didn't change. The August 4 draft CAP didn't split sewer collection and sewer treatment. Information provided on Augustl0 did split sewer collection and sewer treatment, but did not provide documentation of the specific methodology for this split. i City of San Bernardino Municipal Water Department Cost Allocation Plan Review August 10, 2011 Page 2 Remaining Differences 1. For many items,the amount allocated still exceeds the value of the services provided 2. Previously raised legal concerns related to public safety cost allocations and the California Constitution still exist. This creates significant legal risk to the Department and the City. [Department to verify language] 3. The allocation between sewer collection and sewer treatment is very flawed. This creates significant legal risk to the Department and the City. [Department to verify language] City of San Bernardino Municipal Water Department Cost Allocation Plan Review August 10, 2011 Page 3 Specific Review Comments Building Use 1.003 City Hall Concur. Removed from the CAP because it is included in the Municipal Water Department (Department) lease. 1.004 Other Not applicable. No costs allocated to water or sewer treatment Equipment Use Concur. There is no cost allocated to water or sewer treatment. Mayor Do not concur. The Board of Water Commissioners (BOWC) provides policy guidance and oversight for the Department, not the Mayor. The Mayor appoints board members and is only involved during sewer treatment rates. Mayor occasionally handles citizen complaints related to the Department. Costs allocated to Department exceed services provided. Allocation based on budget with 25% water discount and sewer treatment discount is not acceptable. The Mayor's office does not provide $165,176 worth of services to the Department. The Municipal Water Department (Department) will support allocation based on budget with a 75% water discount and 75% sewer treatment discount. Council Do not concur. Council holds public hearings for sewer treatment rates (at most once a year) only. There is no official water involvement. However, the Department has some interaction with Council because citizens do sometimes contact their councilmember if there is an issue with water or sewer treatment. Costs allocated to Department exceed services provided. Allocation based on budget is not acceptable. The Council does not provide $107,754 worth of services to the Department. City of San Bernardino Municipal Water Department Cost Allocation Plan Review August 10,2011 Page 4 The Department will support a budget-based allocation with 75 percent discount for water sewer treatment. City Clerk Administration, SEI Filings, and Boards and Commission Support Do not concur. The Department maintains minutes and agendas for all BOWC activities. The City Clerk may handle one action (sewer treatment rate hearing) per year. The Department does all of its own document retention. The City Clerk's office provides some limited support to the Department when questions arise regarding Form 700 compliance, AB 1234 or posting requirements. They do assist with research regarding resolutions, and the Department estimates they assist the Department a dozen times per year. Costs allocated to Department exceeds services provided. Allocation based solely on budget is not acceptable. The City Clerk's office (including elections, described below) does not provide $198,873 in services to the Department. The Department will support eliminating this requirement for water and allocation based on budget with a 90% water and sewer treatment discounts. Elections Do not concur. The Department's Board of Water Commissioners are appointed. Costs allocated to Department exceed services provided. Allocation based on budget is not acceptable. The Department will support eliminating all costs allocated to Water and Sewer Treatment. Passport Acceptance Concur. Records Management Concur. Business Regis trationfTLT Collections Concur. City of San Bernardino Municipal Water Department Cost Allocation Plan Review August 10, 2011 Page 5 City Treasurer Investments Concur Banking and Cashiering Services Concur City Attorney Municipal Legal Services Concur Litigation Concur Prosecution Concurrence not yet determined The Department believes that prosecution activities are not related to the provision of water or sewer treatment services, and allocation of these costs would be a Proposition 218 violation. The Department's legal representative from the City Attorney's office was not asked for input into the CAP. EDA Services Not applicable. These costs are allocated directly to EDA in their entirety. City Manager Administration Do not concur. The Department's General Manager is responsible for the leadership, direction and oversight of the Department as directed by the BOWL, not the City Manager. There is very limited interaction with the City Manager or City Manager office staff. Costs allocated to Department exceed services provided. Allocation based on budget with 25% water and sewer treatment discount is not acceptable. The City Manager's office does not provide $276,959 worth of services to the Department. City of San Bernardino Municipal Water Department Cost Allocation Plan Review August 10,2011 Page 6 The Department will support allocation based on budget with a 90% water discount and 90% sewer treatment discount. Communications and Community Relations Do not concur. For water and sewer treatment services, these activities are completed by the Department. Costs allocated to Department exceed services provided. Allocation based on budget with no discount to the Department is not acceptable. The Department will support allocation based on budget with a 90% water discount and 90% sewer treatment discount. Grants Coordination Concur, provided grants obtained and administered by the Department are not included. Intergovernmental Relations Concur. Allocation is based on the number of legislative actions and no cost is allocated to water or sewer treatment. For the Department's activities, this activity is completed by the Department with no involvement from the City Manager's office. Noting that there have been no legislative actions related to water or sewer is clear evidence that many of the other allocations in the CAP are very flawed (examples include Mayor, Council, City Clerk, City Manager). Organizational Effectiveness Concurrence not yet determined The CAP allocates costs based on the number of internal audit issues. Neighborhood Services Do not concur. The Department completes its own outreach and citizen participation efforts. Costs allocated to Department exceed services provided. Allocation based on budget with no discount to the Department is not acceptable. The Department will support eliminating all costs allocated to Water and Sewer Treatment. City of San Bernardino Municipal Water Department Cost Allocation Plan Review August 10, 2011 Page 7 Special Events/Arts and Culture Concur. Finance All CAP Categories Do not concur. For water and sewer treatment, the Department provides all services that the Finance Department provides for other city departments. The Finance Department does not provide $139,990 worth of services to the Department. The Department will support eliminating all costs allocated to Water and Sewer Treatment. General Government Fine Arts & Cultural Affairs Concur. Non-Departmental Concurrence not yet determined Professional Contracts Concur. Charter 186 Concur PERS Concur Lease Payments Concurrence not yet determined The Department requires specific documentation of the nearly $200,000 in lease payments attributed to water, and requires the "debt budget" that forms the basis of the lease payment allocation in the CAP. City of San Bernardino Municipal Water Department Cost Allocation Plan Review August 10,2011 Page 8 Human Resources Administration and Employee Services Concur. Workforce Planning and Retention Do not concur. The Department provides all workforce planning and retention services. Allocation based on the number of recruitments and trainings is not acceptable. The Department will support eliminating all costs allocated to Water and Sewer Treatment. Civil Service Administration Concur Employment Services Concur Facilities Management Custodial Maintenance Concur. Building Maintenance Concur. All Utility Support Costs Except for Fire Dumpsters • Fire Emergency Communications • Utility Support—Right of Way Tree Trimming • Utility Support—Public Works—Real Property • Utility Support—Fire Hazmat • Utility Support—Police Patrol • Utility Support—Concrete Maintenance City of San Bernardino Municipal Water Department Cost Allocation Plan Review August 10, 2011 Page 9 Utility Support—Fire Rescue Do not concur Specific objections were transmitted on July 6, and these objections remain. Previously raised legal concerns related to public safety cost allocations and the California Constitution still exist. This creates significant legal risk to the Department and the City. The Department further objects to the allocation of these costs between sewer treatment and sewer collection. The August 4 draft CAP allocates these costs in their entirety to sewer treatment. However, these services all are provided in the sewer collection system, and must be allocated to sewer collection. City Hall Security City Hail Building Concur. EDA Building Not applicable. These costs are allocated directly to EDA in their entirety. Utility Support— Fire Rescue Do not concur. The Department has requested the actual response data that the fire responses cost allocation is based on. See above discussion of Fire Emergency Communications. Utility Support— Fire Dumpsters Concur. Utility Support— Police Infrastructure Do not concur. The CAP allocates two types of costs: infrastructure protection — patrol, and critical infrastructure training. Infrastructure Protection • Patrol CAP allocation is based on 65 incidents per year requiring 405 hours of patrol time. The Department seeks documentation on what each incident was, and how the 405 hours of patrol time are substantiated. The Department also seeks documentation proving that these costs are not redundant with Utility Support—Police Patrol costs above. City of San Bernardino Municipal Water Department Cost Allocation Plan Review August 10,2011 Page 10 Critical Infrastructure Training The CAP allocation is based on a 29 person team receiving 42 hours of training each year related to the water supply. The Department seeks documentation of training materials that substantiate the time required, training received, and participants that received this training. Requested Information New request: Documentation of"financial best practices in Cost Allocation Principles"from an industry-recognized source not affiliated with the City's consultant. Request made July 6, 2011. City Attorney's Office: Documentation of the specific prosecutorial services related to water and sewer treatment services and the specific documentation of this cost allocation used in the CAP. Request made July 6, 2011. City Manager's Office: The specific internal audit issues related to water and sewer treatment. Request made July 6, 2011. General Government: The exact nature of the approximately $80,000 in non-departmental services provided to water and sewer treatment. Request made July 6, 2011. General Government: specific documentation of the lease payments attributed to water, Request made July 6, 2011. General Government: The "debt budget" that forms the basis of the lease payment allocation in the CAP Request made July 6, 2011. Right of Way Tree Trimming: More documentation of the right of way cost allocation is needed. Documentation provided is not labeled and does not show the ultimate source of data used to generate CAP cost allocations. The utility support for tree trimming is part of the overall Parks Department budget for tree trimming and it appears that 29 percent of the total program cost was considered utility support. Since no mention of utility support appears in the Parks Department budget, the Department requests specific documentation of how costs allocable to utility support were identified. Request made July 6, 2011. Fire HazMat: CAP allocations are based on a total of 85 Hazmat incidents. The Department is not aware of any of these involving its own facilities and already maintains certified hazardous chemical personnel for its facilities. The Department seeks the specific documentation that shows what the 85 Hazmat incidences were. Request made July 6, 2011. Police Infrastructure Protection — Patrol: Documentation proving that these costs are not redundant with Utility Support— Police Patrol costs. Request made July 6, 2011. Police Infrastructure Protection — Critical Infrastructure Training: Documentation of training materials that substantiate the time required, training received, and participants that received this training. City of San Bernardino Municipal Water Department Cost Allocation Plan Review August 10, 2011 Page 11 Request made June 30, 2011. Fire Rescue: Documentation of the approximately 144 service calls from the Fire Department that formed the basis for cost allocations to water and sewer.