HomeMy WebLinkAbout1974-05-07; City Council; 3079; Joint Powers Agreement Restructuring Studyk
C I T Y O F
Agenda Bill
Itefcrred To:
CAR LSBA D, C A L 7 0 R N X A
Date: _May 7, 1974
Subject: - - - - Submitted By:
Joint Powers Agreement for Local
Government Restructuring Study City Manager
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Statement of the Natter
The County Administrator, Mr. Frank Aleshire, is asking
County cities to participate in.a Joint Powers Agreement.
Funds for the study are to be provided by a HUD 701 Grant.
Present member agencies are the City of San Diego, O'tay,
Municipal Water District and the County of San,Diego. The
governing board will be independent so that the selection
of which agencies execute the agreement is not critical.
The purpose of the Joint Powers Agreement is to conduct a
study on the structure and division of responsibilities of
local government agencies.
A public entity will be created to be known as the Joint
Powers Agreement Local Government Restructuring Study -
"Citizens Committee to study the restructuring of local
government in the San Diego region," aka LOGORS agency.
Exhibit
Letter from Frank Aleshire, County Administrator.
Draft of Joint Powers Agreement.
Staff Recommendations
See City Manager recommendation
AB No. Date: May 7, 1974
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Cit!Z_Manager's Recommendation
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Execution -of the Joint Powers Agreement is not necessary
at this time. The County is asking only for the Council's
-view concerning -this project.
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•Council Action
• 5-944 It was the decision of -the Council not to participate in the subject
Joint Powers Agreement.
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BOARD OF SUPERVISORS
JACK WALSH
`tOtIV n %ryr FIRST DIST nICT
i
DICK BROWN
C ) � LOU
.ICCO ND DISTRICT
COUNTY OF S A N O I E G O LOH np DNDE
ISTRICT
COUNTY ADMINISTRATOR • 1600 PACIFIC HIGHWAY JIM BEAR
FOURTHDISTRICT
SAN DIEGO. CALIFORNIA 92101 • (714) 236.2722 LEE TAYLOR
FRANK D. ALESHIRE
1 234
34 FIFTH DISTRICT
i 6,
COUNTY ADMINISTRATOR 4
March 29, 1974 APRIft
N
Mr. Paul Bussey, City Manager �P, C'•'�r.r
City of Carlsbad,
1200 Elm Avenue
Carlsbad, California 92008
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Enclosed is a draft of a joint powers agreement w ich is proposed
s by the'County as the means to conduct a study on the structure
and division of responsibilities of local government agencies.
Many of our City Mayors, present at the March 11 meeting of the
League Executive Committee, heard Chairman Lou Conde's presenta-
tion on the background of this effort and the evolution of the
proposal into its present form. For your information we are
enclosing a copy of a recent background report.
We would like you to convey this information to your City Council
l (Board of Directors for Otay) and solicit comments or suggestions
from them for conveyance back to us. Please try to obtain these
within ten days so we may meet certain deadlines for HUD 701 grant
applications. Attachment A of the agreement would serve as a sum-
mary of the proposal for your Counsil's (Board's) reading.
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The agreement is almost identical in features with that which
established the Human Relations Commission and, therefore, pro-
vides independence except for fiscal constraints. San Diego City
i was selected as a Member Agency because of the close collaboration
with the Mayor's office in developing the proposal. The Otay
' Municipal Water District was selected at County Counsel's request
as its non -civil service personnel system provides flexibility in
hiring staff. The selection of which two or more agencies execute
the agreement is not felt to be critical as the Governing Board
will be independent. If other cities wish to be signatories of
this agreement, we have no objections.
If you have questions, please contact Arnold Andersen on 236-2001.
s
F.D. ALESHIRE
County Administrator
Attachment
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cc -Board of Supervisors
Ad tloc Committee
Urban Observatory
FDA:AA:bee
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March 27, 1974
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A� T
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JOINT POWERS AGREEMENT
LOCAL GOVERNMENT RESTRUCTURING STUDY
+ This Agreement is between the City of San Diego, the Otay Municipal
Water District, and the County of San Diego, hereinafter collectively
or individually referred to as "Member Agencies."
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WI T N E S SE TH:
W1iEREAS, Member Agenices realize the need for a comprehensive
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review and analysis of the San Diego region's local government
structure and organization, and the division of responsibilities for `
( local government services; and
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WHEREAS, Member Agencies believe that the joint exercise of
their powers will provide an organization capable of involving local
government agencies in this study; and
WHEREAS, Membar Agencies believe that this study group should '
proceed without having to rely on staff support from Member Agencies
and with general independence;
NOW, THEREFORE, in consideration of the mutual promises and
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agreement herein contained, do agree as follows:
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Section 1. PURPOSE. This agency is created to:
i A. Survey the local government structures and services
�. warranting detailed study and analysis, and develop and
recommend a budget, work.plan and schedule to accomplish
this survey (Phase I.).
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B. Obtain permission for Participating Agencies to proceed
with work plan, from funding source.
C. Complete work plan and publish findings (Phase II).
Section 2. TERM. This Agreement shall become effective when executed
by Member Agencies. A Member Agency may terminate its participation
in the agreement at the end of Phase I by giving 90 days written
notice to the•other Member Agencies of its intention to terminate.
Such termination does not terminate the Agreement provided at least
two Member Agencies continue to participate. This Agreement may
itself be terminated by mutual consent of all Member Agencies.
Section 3. CREATION OF AGENCY. There is'hereby created a -public
entity to be known as the "Citizens' Committee to Study the Restructuring
of Local Government in the San Diego Region" (herein called the
LOGORS Agency) which shall be a public entity separate and apart
from Member Agencies.
Section 4. GOVERNING BOARD. The LOGORS Agency shall be administered
by a governing board of 26 members, who must be electors during
their service. All voting power shall reside in the governing board.
Section S. APPOINTMENT OF GOVERNING BOARD. The initial 26 members
of the governing board shall be nominated and appointed by Participating
Agencies as follows:
A. Four appointed by the Board of Supervisors of the County.
B. Four appointed by the San Diego City Council.
C. One appointed by each other City Council in the County.
D. Three appointed by the Board of Directors of the Compre-
hensive Planning Organization.
Page 3 _
. E. Two appointed by the Independent Special District Selection
Committee established pursuant to Government Code Section
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54782.6.
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F. One appointed by the Commissioners of the Unified Port i
District of San Diego.
G. "Participating Agencies" shall mean those appointing authorities
named in this section which do appoint and maintain a duly
qualified member of the Governing Board.
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4 Section 6. TERM OF OFFICE OF GOVERNING BOARD MEMBERS. The terms
of office of the members of the governing board shall coincide,With
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the length of this Agreement and each member shall serve at the will
and pleasure of his respective appointing authority. -
Section 7. VACANCIES ON GOVERNING BOARD. Any vacancy occurring on
the'Governing Board due to non -appointment by an appointing authority
shall remain vacant.
Section 8. MEETINGS OF THE GOVERNING BOARD. The governing board
shall establish its meeting schedule, subject to provisions of the
Ralph M. Brown Act (commencing with Sec. 54950 of the Government
Code). A majority of the members that have been appointed and
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qualified shall constitute a quorum for the transaction of business.
Minutes shall be kept by the Secretary and a copy thereof provided
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to each Participating Agency.
Section 9. COMPENSATION OF BOARD MEMBERS. Each member of the
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I governing board shall receive as compensation the sum of $10 for
each meeting of the governing board attended, but not to exceed $20
monthly. Each member of an executive committee, if formed, shall
receive as compensation the sum of $10 for each meeting of the
executive committee attended, but not to exceed $20 monthly.
Section 10. RULES OF GOVERNING BOARD. The governing board may
adopt, from time to time, such rules and regulations for the conduct j
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of its meetings and affairs as may be required.
Section 11. OFFICERS AND EMPLOYEES OF AGENCY.
A. Chairman, Vice -Chairman. There shall be a Chairman and
Vice -Chairman of the governing board elected by the governing
board.
B. Secretary. The governing board shall appoint a Secretary
of the Agency who may but need not be a member of the
governing board.
C. The Treasurer of the Agency (hereinafter referred to as
the Treasurer) shall be the duly elected and acting County
Treasurer of the County of San Diego serving ex-officio as
Treasurer of the Agency.
•D. The ,Auditor of the .Agency (hereinafter referred ,to as the
Auditor) shall be the duly appointed and acting County
Auditor of the County of San Diego serving ex-officio as
Auditor of the Agency.
E. Executive Director. The Agency shall employ an Executive
Director.
F. Attorney. The Agency may employ an attorney.
G. Experts and Other. Employees. The Agency, through the Executive
Director, may amploy such experts and other employees as it
deems necessary. Participating Agencies may but need not pro-
vide staff support to LOGORS Agency.
i H: None of the officers or employees mentioned in this Section
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shall be deemed, by reason of their employment by the Agency,
to be employed by the Member Agencies or the Participating
Agencies.
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The County offers to provide advertising, testing, and
screening for personnel recruitment without charge.
Section
12. POWERS AND DUTIES OF GOVERNING BOARD. The Governing
Board shall have the following powers:
A.
Executive Director. The Governing Board shall employ an
executive director.
B.
Employees. The executive director, subject to appropria-
tion of funds for such purpose by the Governing Board, may
employ as Agency employees such staff as he shall determine
to be necessary to carry out the policies and programs of
the Governing Board. The Executive Director alone shall
have the authority to dismiss any such employee of the Agency.
C.
Furnishings and Equipment: The Governing Board may acquire
office space, furniture and facilities and services necessary
to carry out its policies and programs. Participating
Agencies may but need not provide such space, furniture,
facilities and services as deemed apppropriate.
I D.
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Financial Statement. The Governing Board shall present to
each member of the Governing Board and to each party to
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this Agreement a quarterly statement of the current financial
condition of the Agency.
E.
The Agency, as provided in Section 6508 of the Government
Code, is authorized, in its own name, to do any or all of
the following:
1. To make and enter contracts and to lease real property.
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2. To employ agents and employees.
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3. To incur debts, liabilities or obligations.
F. 'The Agency shall have the power to sue and be sued in its
own name.
G. The Agency may but is not required to appoint an Executive
Committee and delegate thereto such authority as the
Governing Board deems necessary.
Section 13. PROJECT BUDGET. The Governing Board of the Agency shall
adopt a project Budget for each of Phase I and Phase II after taking
into consideration the intent expressed in the Overall Program Design,
Attachment A, which is an estimated work plan submitted in a grant
application. The form and.content of tha budget shall conform to
State law and any rules, regulations or directives of the State
Controller and the Auditor. The Project Budget for Phase II shall
be submitted to the County for approval.
Section 14. FISCAL YEAR. "Fiscal year" means the year period com-
mencing July lst and ending the next following June 30th.
Section 15. FUNDS - DEPOSIT IN COUNTY TREASURY.
A. The Agency may accept and expend funds from private, as
well as public sources, for the purpose of carrying out
its powers, duties, responsibilities and obligations
specified in this Agreement.
B. Subject to the•provisions of this Agreement and any
applicable law, the Treasurer shall receive, have custody
of and disburse Agency funds (1) pursuant to the accounting
procedures prescribed pursuant to Section 20 of this
Agreement, and (2) as nearly as possible in accordance
with normal County procedures.
Page 7
Section 16. SOURCE OF FUNDS. The County of San Diego agrees to
fund LOGORS Agency in Phase I which will be limited to $40,000 and
six months duration. The County of San Diego further agrees to fund
Phase II, subject to its approval of the work plan for that Phase
as described in Section 1, B hereof. Should the County not agree
to the scope of the work plan it will continue -to act as the fiscal
agent for the Agency but will not finance the expenditures.
Section 17. EXPENDITURES AND OBLIGATIONS.
A. The governing board, executive committee and every other
official or employee of the Agency shall be limited in the
making of expenditures,or the incurring of liabilities to
the amount of the appropriations allowed by the budget as
adopted by the governing board or thereafter revised by
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said board.
B. Except as otherwise provided by law, warrants issued, ex-
penditures made or liabilities incurred in excess of any
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budget appropriation are not a liability of the Agency or
a liability of any party to this Agreement.
Section 18. PURCHASES. The Purchasing :Lgent of the County shall be
ex-officio Purchasing Agent of the Agency and all purchases by the
Agency shall be made pursuant to the laws, County of San Diego Charter
and County of San Diego Administrative Code provisions applicable
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to purchases by the County.
Section 19. RECORDS AND ACCOUNTS - CHARGE FOR SERVICES OF AUDITOR
AND TREASURER.
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A.
The Agency shall be strictly accountable for all funds.
B.
The Governing Board of the Agency shall cause to be kept
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proper books of records and accounts in which a complete
and detailed entry shall be made of all its transactions
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including all receipts and disbursements. Said books and
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records shall be kept in accordance with State law and rules
and regulations of the State Controller and as required by,
the Auditor. Said books shall be subject to inspection at
any reasonable time by the duly authorized representative
of each of the parties to this Agreement.
C.
The Auditor shall either make or contract with a certified
public accountant or public accountant to make an annual
audit of ,the accounts and records of the Agency as, provided
in Section 6505 of the Government Code. The Auditor of the
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Agency, within 120 days after the close of each fiscal year,
shall give a complete written report of all financial
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activities for such fiscal year to the County, and to each
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of the Member Agencies.
D.
The Agency shall cause to be prepared an annual financial
and operational report, including a report of all receipts
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and disbursements of funds which shall be available at the
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office of the Secretary of the Agency and a copy thereof ,
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shall be delivered to each party to this Agreement.
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The Board'of Supervisors shall determine the charges, if
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any, to be made against the Agency for the services of the
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Purchasing Agent, Treasurer and Auditor.
Page 9
Section 20. CLAIMS. All claims against the Agency including but
not limited to claims by public officers and employees for fees,
salaries, wages, mileage or other expenses, shall be filed within
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the time and in the manner specified in Chapter 2 (commencing with
Section 910) of Part 3, Division 3.6 of Title 1 of the Government
Code or in accordance with claims procedures approved by the Auditor
of the Agency and established by the Governing Board of the Agency'
pursuant to Chapter 5 (commencing with Section 930) or Chapter 6
(commencing with Section 935) of said Part 3 of the Government Code.
The Governing Board of the Agency shall adopt a regulation requiring
that all claims shall be so filed.
Section 21. ALLOWANCE OF CLAIMS BY AUDITOR.
A. The Auditor of the Agency shall audit and allow oe reject
claims in lieu of, and with the same effect as, allowance'
or rejection by the Governing Board of the Agency in any
of'the following cases:
1. Expenditures which have been authorized by purchase
orders issued by an officer of the Agency authorized
by said Governing Boars: to make purchases.
2. Expenditures which have been authorized by contract,
resolution or order of the Governing Board or of the
executive committee of the Agency acting within the
scope of its authority.
B. The Auditor shall require the certificate of the requisi-
tioning or receiving officer that the articles or services
have been received•or contracted for.
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Section 22. PROPERTY CUSTODIAN - BOND. The Executive Director of
the Agency shall have charge of the property of the Agency and shall
file an official bond in the minimum sum of $2,000.
Section 23. INSURANCE - BONDS.
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` A. The Agency shall at all times maintain with responsible
insurers workmen's compensation insurance and insurance
against public liability and property damage to the extent
reasonably necessary to protect the Agency and the parties
to this Agreement.
B. The Agency shall cause such of its officers and -employees,
in addition to its Executive officer, to be bonded as may
? be required by the Auditor.
Section 29, NONLIABILITY OF PARTICIPATING PARTIES.
A. No party to this Agreement shall be obligated to provide
any money, office space, furnishings, equipment, supplies,
services or anything whatsoever to the Agency unless ex-
pressly provided for in this Agreement.
B. The debts, liabilities and obligations of the Agency shall
Inot be the debts, liabilities or obligations of any party
or parties to this Agreement. No party to this Agreement,
that is neither the County nor any of the Member Agencies,
shall be liable for any debts, liabilities or obligations
of the Agency.
Section 25. NOTICES. Notices hereunder shall be sufficient if
delivered to:
COUNTY Clerk of the Board of Supervisors
Room 306, County Administration Center
San Diego, California 92101
Page 11
Any of the MEMBER AGENCIES Clerk or Secretary of Member Agencies
AGENCY LOGORS Secretary or Executive Director of
Agency
Section 26. MISCELLANEOUS. The section headings herein are for
convenience only and are not to be construed as modifying or governing
the language in the section referred to.
Section 27. PARTIAL INVALIDITY. If any one or more of the terms,
provisions, promises, covenants or conditions of this Agreement shall
to any extent be adjudged invalid, unenforceable, void or voidable
for any reason whatsoever by a court or competent jurisdiction each
and all -of the remaining terms, provisions, promises, covenants and
conditions of this Agreement shall not be affected thereby, and shall
be valid an& enforceable to the fullest extent permitted by law.
Section 28. DISPOSITION OF ASSETS ON TERMINATION OF AGREEMENT. At
the termination of this Agreement all funds on hand shall be returned
to the respective parties to this Agreement as nearly as possible
in proportion to the contributions, if any, made to the fund then on
hand. Any equipment, furniture or furnishings which can be identified
as having been contributed by any -arty to this Agreement shall be
transferred to and become the property of the party contributing
such equipment, furniture or furnishings. Any other property of the
Agency shall be distributed among the parties to this Agreement, each
party to receive the proportion that the amount of money, if any,
contributed to the Agency by such party bears to the total amount
of money contributed to the Agency by all parties to this Agreement.
Section 29. PROCEDURES TO BE FOLLOWED. Pursuant to California
Government Code, Section 6509,' which requires that the powers of
LOGORS Agency be limited by the legal restrictions placed upon a
Page 12
named Member Agency, the powers of LOGORS Agency delineated under
Section 12 above with regard to employment of officers, agents and
employees shall be subject to those legal restrictions imposed
upon the Otay Municipal Water District by the Constitution of the
State of California and the laws governing said District, and the
5 remaining powers of LOGORS Agency delineated under Section 12 above
shall be subject to those legal restrictions imposed upon the County
of San Diego by the Constitution of the State of California, the
Charter of the County of San Diego and the laws governing said County.
Section 30. AGREEMENT REPOSITORY. A fully executed copy of this
Joint Powers Agreement and any amendments thereto shall be filed
with the Governing Board and each Member Agency.
} IN WITNESS WHEREOF, the parties hereto have caused this Agree-
ment, to be executed and attested by their proper officers thereunto
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' duly authorized and their official seals to be thereto affixed.
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j ATTEST COUNTY OF SAN DIEGO
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By - By
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ATTEST CITY OF SAN DIEGO
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By By
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ATTEST OTAY MUNICIPAL WATER DISTRICT
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i By
ATTACHMENT g
OVERALL PROGRAM T)PSIC-"—
STUDY OF RESTRUCTURING OF LOCAL GOVERN;IENT IN THE'SAN DIEGO
COUNTY REGION
Background ,
Excluding schools, this region's 1.5 million residents are served.
by'208 special purpose and 14 general purpose local government
agencies under the'trust of 570 elected officials. with 1969-70
expenditures budgeted at $642 million. The delivery systems for
today's government services are based on the evolution of juris-
dictional boundaries originating from Spain's land qrants (pueblos)
and on incorporations granted mostly at times from the turn of this
.century to the present. Since then the population size and charac-
teristics and the number and_type of government services requested
has changed very significantly. More importantly, the pattern of
assigning responsibility for these services and the distribution
of non -local tax resources to help finance them has not been re-
lated to each other, or to needs, or to any decipherable overall
plan.
In addition, the State and Federal mandates to improve and protect
air and water quality, and to apply regionil.perspectives to plan-
ning for parks, transportation, sewerage systems and, in effect,
all important programs not financed wholly by local resources
(rd-95 review), have required de facto restructuring of the politi-
cal decision -making process.
This influence and growth related 'demands for better services
'through consolidations, incorporations or special districts has
created a lively.cor.peti.tion among local agencies to deliver new
services. Continual increases in property taxes, whose rates
vary by three to one -(twice the national average for SMSA's) in
our•1,890 tax code areas, are influencing land use decisions
through individual agency efforts to attract revenue producing
activities.
Purpose and Goals
The purpose of this study is to recommend the de jure restructuring
of our local political representation for the financing and delivery
of this area's government needs. This is to meet the goal,, of
visible governmental structures that consider regional and communi-
ty perspectives, financing equities, and yet are effective and
reasonably efficient.*
PHASE I - SURVEY OF PRESENT STRUCTURES
Objectives
To make a preliminary but regionwide survey of present systems
delivering State and local government services in the San Diego
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SMSA (the County) in order to identify where major alternatives
may be desirable, and to recommend the scope and detailed work
plan for Phase II.
Major lJork Elements ,
1100 Establish Committee Structure - Create.a joint powers
•agreement between San Diego County, San Diego City; a '
non -Civil Service city (Escondido), and a large special
district (0tay municipal Water District) and designate
as its governing board the representatives appointed by
agencies wishing to participate as follows:
A. Four appointed by the Board of Supervisors of the
County.
B. Four appointed by the Sari Diego City Council.
C. One appointed by each other City Council in the
County. .t
D. Three appointed by the Board of Directors of the
Comprehensive Planning Organization.
E. Two appointed by the Independent Special District
Selection Committee established in Government Code
Section 54782.6. ;
F. One appointed by the Commissioners of•the Unified
Port District of San Diego.
Although there is no restriction in the joint powers
agreement against appointing a presently elected offi-
cial or a member of the Local Agency Formation Commission,
it is -intended that such persons not be appointed, to the
extent possible. Also unwritten but urged is the appoint-
ment'of a citizen knowledgeable of and in sympathy with
the viewpoints of the Indians of local reservations.
This is in recognition of the funding condition of the
HUD 701 grant to "address the future role of Indian
Reservations as governmental entities."
1120 •Obtain Staff Support - Secure -minimum staff support by
'loan or contract for Phase I needs.
1130 Define Purpose -'See above, Objectives.
1140 Anticipated Benefits - Set forth details on the value of
fulfilling -the goals of having visibl• governmental
structures that c, isider regional and cam*nurLity per-
spective financing, equities and which are effective and
reasonably efficient.
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1160 Agency and Services Inventory - Describe in general: {
A. Legal authority
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B. Political representation (including an index or
visibility)
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t C. Services including costs, financing, clientele
area and characteristics, output and purpose. F
The inventory would include all cities, special districts
for the following purposes: sanitation (14), flood
control (5), county water (10), municipal water (18),
irrigation (7), fire protection (18); and the Unified
Port District. County government functions would be
included except for the regional services of property
assessment, tax collection, elections, the courts,
and public health except for addictive programs and
community, clinics.
1170 Evaluate Present Systems - Apply weighted values to
identify major deficits and identify possible alter-
natives warranting detailed analysis.
1180 Recommend Scope and Work Plan - Describe parameters of
Phase II study and propose a detailed work, plan and
schedule, and secure•approval or modification by par-
ticipating agencies.
Estimated Costs and Staffing
Staffing Man-►donths Staff
Major fork Element Public Agencies Contract Costs
1100, 1200 2 $ 3,000
1,140, 1150' 1 2,000
1160 10 5 16,000
1170 2 4,000
1180 2 1 5,000
14 9 $30,000
Elapsed time not to exceed six months.+
• Space and adm. costs 10,000
Source of Funds
Non -Federal
$40,000
$40,000 $40,000
PHASE 11 - ANALYSIS OF POSSIBLE ALTERNATIVE SI'RUCTURES
Objective
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To,;iake a detailed study of services identified as subject to
possiple improvement from alternative structuring, to determine•
the feasibility of such and the form of change based on public
• hearings, and to convey such information to affected agencies and '
r the general public.
Y
y ; Major work Elements
2110 - Establish Public Information Program
2120 - Obtain Staff Support for Phase II !
E 2130 - Confirm Purpose
2140 - Confirm Anticipated Benefits
2150 - Confirm Criteria
2160 - Detailed Inventory of Selected Agencies i
2170 - Analysis of Alternative Structures, Financing •f
and Political Representation
2180 - Conduct Informational Public Hearings,
2190 - Report Findings and Recommendations
j 2200 - Participate ir. Required Public Hearings for
{ Restructuring as Necessary. '
Elapsed time of Phase II to be less than twenty-two months
less time of Phase I.
Source of Funds
Non -Federal $266,000 -
j 701 Federal 80,000
Other (NSF) 60,000
' Total $406,000
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acre of Applicant Ounry ux, ban viego
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CO.'•XR£HENSIVE PLANNING ASSISTANC$ PROGRA44
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Data
OVEMLL PR0QW1 DESIGN WORK SUED=
•
�roject
Title STUDY OF RESTRUCTURING OF LOCAL GOVERNMENT
F
IN THE SAN DIEGO
COUNTY REGION
, ' • "
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SUBCATEGORY
FIRST YEAR
SECOND YEAR '7y-74
THIRD YEAR 7�'•76
OBJECTIVES
QUARTER
QUARTER
QUARTER
1st
2nd
3rd
• 4th
1st
2nd
3rd
kith
'
1stI
2nd 3rd I 4th
1
PHASE I
P
tstablish Committee
Structure
f
,0
Obtain Staff Support
'0'
Dcfine Purpose
,0'
Anticipated Benefits
,.
0
Establish Criteria
,
10
Agency, Services
R
i
Inventory ••
,
'0
Evaluate Present System.
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cReconmtend Scope, Work
Plan
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P!!ASE II
�O
.Establish Public Info'r-
mation Program
10
--'Main Staff Support
!O
-.Confirm Purpose
IO
,Confirm Antic. Benefits
0
Confirm Criteria
1{0
'Detailed Inventory
j
,O
Analysis
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!0
Informational Hearings,
0
Report
0
Pahicipate idRequired
Public Hearings
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U
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ELMER H. KESHKA
PROGRAM DEVELOPMENT
ADMINISTRATOR
I -
BOARD OR SUPERVISORS
JACK WALSN
FIRST DISTRICT
DICK BROWN
COUNTY OF SAN DIEGO
SECONO DISTRICT
LOUCONDE
THIRD DISTRICT
PROGRAM DEVELOPMENT AGENCY • 1600 PACIFIC HIGHWAY
JIM BEAR
DIEGO. CALIFORNIA 92101 • TELEPHONE (714) 236.2001
FOURTH
SAN
DISTRICT
yyILLIAM CRAVEN
►IRN OISTRI�T
FRED J. MOREY
'
CHIEF ADMIN15TRAYIVK
OFFICER
February 26, 1974
TO: Citizens Charter Review Committee
FROM: Program Development Agency
BACKGROUND OF PROPOSED LOCAL GOVERNMENT RESTRUCT11RING STUDY
In response to questions on this subject.by several members, we
are providing this report.
Background
The need for an in-depth study of local government alternative
structures for services and decision -making has been discussed for
several- years. This was in part precipitated by the restructuring
.of the CPO, the related SANCOG bill of 1971 and the new CPO joint
powers agreement in 1972. The Board of Supervisors affirmed this
need at its September 6, 1972 conference when one of the conditions
required to join the new CPO agreement was an "...in-depth study by
representative citizen groups... to be completed within two years."
This related to a proposed October, 1975 termination of the present
form of CPO with replacement by the structure recommended by the
study. This was re -affirmed on October 19, 1972 in a joint state-
ment to the Assembly Transportation Committee by the Board of
Supervisors.
'fter learning of a scheduled April 27, 1973 hearing in San Diego
by the State Council on Intergovernmental Relations (CIR) on behalf
of the Governor's "Local Government Reform Project," Chairman Walsh
ani Mayor Wilson initiated a meeting of local agencies' representa-
tives on March 15 to exchange local viewpoints in advance. Present
were representatives from the County, CPO, LAFCo, the Port District
axed the Special Districts Association. The following week repre-
sentatives came from San Diego and Chula Vista and also present
were Robert iiawkips, Chairman of the Governor's Local Reform Task
Force and Glenn Sparrow, Executive Director of a consolidation
study now underway in Sacramento. As a result, on April la, 1973,
the Board of Supervisors approved a recommendation from Supervisors
Conde and Walsh that a "County" statement be presented to the CIR
and that staff work with CPO to dc;rclop a work program and budget.
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The hearings reaffirmed a desire by local government leaders to
cooperate in a local effort which would complement other more
generalized studies. From the initial meeting, an ad hoc com-
mitteewas formed to write a local study work program, seek
financing, and recommend a structure. This ad hoc committee,
which consists of Supervisor Walsh, Mayor Wilson, CPO Chairman
Rypinski, Port Chairman Williams and Special Districts Associa-
tion Chapter Pres. S.Mills, met several more tim s through
July 1973. As a result, a Preliminary Application for an HUD-
701 Planning Grant in the amount of $100,000 was submitted in
October by the Urban Observatory (a federally funded research
project between San Diego City and San Diego State University),
pending selection of an eligible local sponsor (only the County,
CPO, or a city under 50,000 are eligible). A more complete appli-
cation was submitted on November 21 in person by Urban Observatory,
County, and San Diego City staff. Study will require $446,000 over
22 months.
On December 20, the CIR Executive Committee reviewed our applica-
tion for State allocated 701 monies, which their staff ranked as
$2 out of 89 applications. It was approved but only in the amount
of $40,000 which was the maximum allowed for any applidation due
to the limited funds available for 1974-75.
Current Status
The Ad IIoc Committee and the Board of Supervisors have modified the
original proposal and the main features proposed now are:
Committee
! Appointments by: Number
i � San Diego County 44
i Sari Diego City
Other cities 12 (one each)
CPO 3
Special Districts 2
Unified Port District 1
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Scope
The Committee will make a preliminary study of major
local government agencies, resources, services, organ-
ization, etc. and then recommend a work plan for
Phase II which would be approved before initiation.
Funding
Would be by the County, augmented by grants where
possible.
A draft of a joint powers agreement is being written
and each participating agency will soon be contacted
with more information on the specific proposal.
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Status of Related Studies
Following is a summary of other studies on local government struc-
tures that are currently in progress:
1. Governor's Task Force on "Local Government Reform" -
Staff analysis of a state-wide questionnaire and inven-
tory of local government forms and functions was pre-
sented to the Governor's Cabinet November 30, 1973.
No firm information is available on conclusions or
recommendations. However, there is a hint that a
"two-tier" system will be proposed.
2. CSAC's "County Modernization Commission" - Staff analy-
sis of an inventory of County functions was presented
to the Commission on December 7, 1973. Their work
schedule aims at a July 1st final report with distri-
bution after approval on August 5, 1974.
3. League of California Citica - Their "Action Plan" Study
has resulted in adoption at the October 3.973 annual
conference of several policy resolutions. These
include:
a. A joint effort with CSAC "to develop a plan for
local government reform."
b. Assumption by cities of land use control in their
spheres of influence outside their boundaries, with
area coordination through COGS.
c. Assumption by cities of, social service planning and
evaluation within cities and, where they opt for a
service level above the counties' "basic level",
they would be paid by the County for the cost of
that basic level. Area coordination would be by
COGs and advisory councils.
d. Revenue bases should be strengthened by permitting
income and payroll taxes, and sales and use taxes
in selected sectors.
4. San Diego County LAFCo's "Spheres of Influence Study" -
A survey of special districts was made in 1972 and
recently two positions were authorized to initiate this
study in concert with city and other representatives.
Specific tasks and a schedule are not yet defined.
S. Sacramento's Reorganization Study - A 40-member citizens'
committee was created in late 1971 and is scheduled to
complete its work in July 1974. -This $127,000 effort
was financed with $123,000 in IIUD-701 monies, $84,000 in
PEP funds, and the balance of $•120,000 came from the city
and county equally.' That group is now a formal Charter
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Review commission and is writing propositions for the
November 1974 ballot.
The State -level studies being conducted are of relatively short
duration and broad in scope. Whatever conclusions they reach,
r any meaningful legislation or change will require a lengthier
and detailed study best performed at the local level. We be-
lieve this region's leaders have recognized a need for such a
study and are ready to commit their agencies to a cooperative
T effort. lie already have a great deal of information available
i to facilitate this study.
j ARNOLD ANDERSEN
Management Assistant
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`l4 ` y? April 24, 1974 1' APR 1974
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Frank D. Aleshire,
County Administrator
County of San Diego
Administration Center
1600 Pacific Highway
San Diego, California 92101
Dear Mr. Aleshire:
The Vista City Council considered the county proposal
to form a joint powers authority to conduct a study
of the structure and division of responsibilities of
local government agencies and took the position,that
this city does not wish to participate. The reasons
stated by, the Vista City Council include the belief
that this portends the creation of yet another level
of effort that could well be delegated to one or more
existing regional agencies, such as CPO, if really
needed.
The Vista City Council further believes that the pre-
sent structure of this city offers an effective form
of local government that provides better representa-
tion to the community than a larger one might.
Very truly yours,
Frank Meyer
Mayor
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THE CITY OF NATIONAL CITY
1243 NATIONAL AVENUE
NATIONAL CITY. CALIFORNIA 92050 ,
Telephone: 477-1181 Area Code:714
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Office of
CLEO OSBURN pa
City Manager
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April 17, 1974 r
Mr. Paul Bussey, City Manager
City of Carlsbad
1200 Elm Avenue
Carlsbad, California 92008
Dear Mr. Bussey:
On April 16 the National City City
Council took action to file the draft of a Joint
Powers Agreement mentioned by Mr. Frank Aleshire
in his communication of March 29. Our Council
believes that the smallest unit of government is
able to offer more service than larger units and
they expressed the desire to not participate in the
study on the structure and division of responsibili-
ties of local government agencies. The Council
directed that I notify each City of our action in
this matter_.
Sincerely,
C. OSBURN
City Manager
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