City of Culver City, California
City Council Agenda Item Report
RECOMMENDATION:
Receive report and direct staff as deemed appropriate.
EXECUTIVE SUMMARY
The current and future financial issues facing the City are two-fold; both cost reductions
and revenue enhancements must be addressed in order for the City to maintain its high
level of services and financial health.
The estimated projection for the fiscal year 2006-07 operating budget indicates a
potential budget gap as high as $2.0 million. This projection may be modified based on
decisions made during the upcoming budget process. The capital project funding needs
are estimated to be approximately $8 to $9 million each year for at least the next five
years. The future unfunded long-term liability for the Self-insurance Fund was $17
million as of June 30, 2005 and the cash reserve has fallen from approximately $13
million in 2000-01 to just over $1 million in 2004-05. The unfunded actuarial liability for
the CalPERS pension plan is estimated to be approximately $30 million, and the future
liability for the retiree medical insurance is expected to be substantial (amount still to be
determined).
Currently, the City has an estimated deferred maintenance backlog of over $25 million.
The City must assess the maintenance needs for its current infrastructure and develop a
plan and ongoing funding source.
It is prudent for the City to: 1) take an action to close the projected operating deficit, 2)
consider setting aside one-time revenue or establish a steady revenue stream for capital
project needs, 3) implement a plan to off-set the growing future unfunded liability.
Meeting Date: 05/22/06 Item Number: A-1
AGENDA ITEM: Financial State of the City – Part III
Contact Person/Dept.: Jerry Fulwood Phone Number: (310) 253-6000
Fiscal Impact: Yes [X] No [] General Fund: Yes [X] No []
Public Hearing: [] Action Item: [X] Attachments: []
Public Notification: Master Notification List 5/18/06
Department Approval:
Jerry Fulwood, (05/17/06)
CAO Approval:
Jerry Fulwood, (05/17/06)
City Controller Approval:
Marlee Chang (05/17/06)City of Culver City, California
City Council Agenda Item Report
Without the immediate development and implementation of a comprehensive financial
plan, the City may face even tougher financial challenges in the future.
Pension Benefits Create Funding Challenge
In the late 1990’s, the Governor signed legislation authorizing an enhanced retirement
benefit formula for the retirement plans offered by the California Public Employees
Retirement System (PERS). At that time, the stock market was on the incline and
investments were doing very well. This created a “super funded” situation for many
cities. Consequently, Culver City’s PERS account had significant surplus dollars to cover
the PERS pension cost, without further contribution from the City. Therefore, Culver City
and many other cities had the option of not contributing to the pension fund.
As was the trend with many city employee groups throughout California, Culver City’s
employee groups were able to renegotiate pension enhancements. In 2000, Police
Safety negotiated a retirement formula of 3% @ 50, and Fire Safety negotiated 3% @ 55.
Miscellaneous classification employees negotiated 2.5% @ 55 in 2001 and 2002.
With the stock market decline in the early 2000’s, the “super funded” status of cities
within PERS also vanished. Therefore, Culver City, along with other cities, had to begin
contributing back into the PERS pension fund with dollars that had been allocated for
other City needs. Additionally, Culver City had to pay for the newly negotiated pension
benefits that were granted during the time when Culver City’s PERS account was super
funded. The City’s current annual pension cost is approximately $10.1 million.
Retiree Medical Benefits
Culver City is also financially challenged by the fast growing future obligation for retiree
health benefits. Due to changes in reporting requirements, Culver City will need to have
an actuarial study conducted prior to the 2008 deadline. The actuarial information from
this study is required by the Governmental Accounting Standards Board (Statement 45)
to be included in the City’s annual financial statement. While the City is not required to
fund it at this time, it may potentially have a negative impact on the City’s bond rating in
the future.
Salary Initiative Allows Salary Cost to Rise Without an Offsetting Revenue Source
In 1953, Culver City voters enacted an ordinance (Safety Salary Initiative) with the intent
to ensure that Culver City’s Fire and Police public safety employees remained at parity
with counter parts in the City of Los Angeles and the County of Los Angeles. At the time
of enactment, City Councils throughout California had the authority to increase revenues
through local increases in the property tax. With the passage of Proposition 13 almost
30 years ago, along with associated types of ballot initiatives (e.g. Proposition 218), the City of Culver City, California
City Council Agenda Item Report
ability of cities to increase revenues became subject to voter approval. Culver City’s
ongoing revenue has increased over the years; however, the ongoing expenditures have
grown at an even greater rate. In spite of the strong economic growth within the City, it
has not been able to keep up with expenses.
In 2000 and 2001, most of the employee groups negotiated approximately a 4% annual
increase for each of the next four years. At that time the Police Safety Units opted out of
the Safety Salary Initiative choosing a negotiated salary increase with the City instead.
With the expiration of the current MOU, the Safety Salary Initiative has once again taken
effect. Last week, staff received information that salary increases resulting from the
contract re-opener for the Los Angeles County Sheriff’s Department were ratified. The
impact to our Police Safety personnel costs is significantly higher than what was
expected. It is possible that the Fire Safety may receive a similar increase as well. As a
result, the combined public safety personnel cost increases could potentially be
substantially higher than originally anticipated. This additional information worsens the
outcome of the cash flow projection. Consequently, the City’s current on-going revenues
are unable to keep pace with these on-going salary increases without any additional
revenue sources or reduction of on-going expenditures.
For fiscal 2005-06, public safety salary and benefit expenses account for approximately
55% of the total General Fund budget. Consequently, any increase in salaries or
benefits will have a significant impact on the overall City budget.
The City’s ongoing revenue stream and working capital is under siege since the biggest
cost to the City is salaries and benefits for all its employees. Salary and benefits
represent approximately 80% of the budget. The remaining 20% must fund operations,
maintenance, and capital expenditures. This restricts the City’s flexibility, making it very
difficult to balance the budget. At this rate, Culver City’s projected revenue over the next
ten years will not support the projected expenditures.
Culver City has a very talented and dedicated team of employees who take great pride
as professionals in their jobs. They are hard workers, demonstrate a “can do” attitude,
and are a true asset to the City of Culver City.
In order to continue recruiting the best talent possible, we must be competitive in the
market place. The questions that we must address are: how do we continue to be
competitive and retain our current employees? And, how do we recruit the new talent to
replace those employees who are retiring and/or leaving the employment of the City?
Workers’ Compensation/Liability and Medical InsuranceCity of Culver City, California
City Council Agenda Item Report
The California workers’ compensation system was considered by many to be broken with
claims’ cost draining the resources of both the private and public sectors. Culver City
exhausted approximately $13 million of reserve funds within a five year period. As of
June 30, 2005, the City’s long-term liability, which includes all of the older claims that
have not been settled, totaled more than $17 million. The City must keep track of these
claims and close them when and where possible; otherwise, our future liability will
continue to escalate.
Additionally, Culver City must continue to reduce the frequency and cost per claim of its
current workers’ compensation claims. Culver City has the highest cost per claim in our
risk pool, the Independent Cities Risk Management Authority, which includes 29 southern
California cities.
Furthermore, insurance premiums industry-wide have significantly increased since
September 11, 2001. This has placed added pressures on City resources. Prior to
September 11
th
, our insurance premiums totaled $311,000 annually. Today our cost for
insurance premiums, excluding medical premiums, is approximately $1.45 million.
Culver City provides full medical, dental and vision for its active and retired employees,
including their dependents. Ten years ago, medical insurance cost the City
approximately $1.8 million annually. Culver City’s projected budgeted amount for
medical premiums for fiscal year 2006-07 is a little over $5 million. The annual projected
medical cost in five years is estimated to be in the neighborhood of $8.1 million.
The medical and other insurance premium costs continue to increase and contribute to
the structural deficit facing many cities.
Deferred Maintenance
Culver City has parks, streets, sidewalks, buildings, computers, etc., that must be
maintained on an ongoing basis. The projected cost to keep up with current
maintenance and repairs is estimated to be approximately $4 million dollars annually.
Over the last fifteen years or so, Culver City has been unable to generate sufficient funds
to keep up with the annual maintenance of its infrastructure. As a result, the City has
been forced to defer that maintenance to future years. The City’s increased cost for
deferred maintenance continues to grow at an alarming rate; every year that the City
waits, the cost continues to grow.City of Culver City, California
City Council Agenda Item Report
Recommendations
This report includes recommendations/action plans that are provided as a vehicle to help
address the fiscal issues facing the City. The recommendations/action plans are
presented under different categories. Each category provides a brief analysis of the
related issues and respective fiscal impacts. Staff is seeking direction to work with the
Budget Subcommittee on any recommendations the City Council would like to move
forward on for further analysis and discussion. Additionally, staff is looking for
suggestions that City Council may want to include for further consideration.
There are two major categories with subcategories that directly impact the City’s financial
condition and need to be addressed:
1. Funding Needs
Capital Funding/Deferred Maintenance
Operating Funding Needs
Future Liability Funding Needs
2 Financial Alternatives/Options
Cost Reduction
Operation
Cost Sharing
Revenue Enhancements
Ballot Initiated
City Initiated
Organizational Efficiencies
Policy Issues
Summary Conclusion
Culver City is facing a number of major challenges. However, even though Culver City
has a healthy reserve, the decline of the reserve will accelerate unless actions are put in
place. Now that we are aware of the issues, it is imperative that we, as a City, take the
steps necessary to address the challenges before us. It is at this point that the clock
starts to tick.
BACKGROUND:
The City’s Financial Policy states: “The City shall avoid using one-time revenues to
subsidize an ongoing imbalance between operating revenues and expenditures unless a
five-year forecast shows no continuance of structural operating deficits.” Ideally, ongoing
revenues are used to pay for ongoing expenditures while one-time revenues are used to City of Culver City, California
City Council Agenda Item Report
invest in the City’s long-term financial stability and service improvements (e.g. fund
capital projects and set aside money to pay for future liabilities).
In the last decade, many California cities have experienced similar fiscal challenges as
Culver City. These challenges include: absorbing revenue reductions due to State take-
away, funding significant increases in pension costs and medical insurance premiums,
and controlling rising workers’ compensation costs.
However, there are increases in certain ongoing operating expenses that are very unique
to Culver City. Expenses such as the Safety Salary Initiative Ordinance – a non-
negotiable salary initiative passed in 1953 which ties Culver City public safety employee
salary increases to Los Angeles City and County salary increases – and the fact that the
City provides full medical benefits to retirees regardless of their length of service to the
City. When these costs increase consistently without a corresponding increase in
recurring revenue, the City needs to shift funding to pay for those obligations. This has
made it increasingly difficult to establish a consistent funding source for the following:
Capital projects;
Deferred maintenance costs;
Replacement of computers and related technology equipment; and
Setting aside funds to off-set future liabilities (e.g. future workers’ comp and general
liability costs, employee pensions, retiree medical insurance responsibilities,
increases in service levels, CPI increases, and labor negotiations).
Below is a chart showing General Fund expenditures per capita amounts in comparison
to surrounding cities:
General Fund Expenditures
Per Capita - 2005-06
City Amount
Gardena $ 550
Carson $ 580
Redondo Beach $ 882
Torrance $ 988
Burbank $ 1,190
West Hollywood $ 1,228
Manhattan Beach $ 1,236
Culver City $ 1,805
Santa Monica $ 2,407
El Segundo $ 2,914
Beverly Hills $ 3,811 City of Culver City, California
City Council Agenda Item Report
Despite these circumstances over the last five to ten years, the City has, for the most
part, maintained a 30% General Fund reserve balance and has no bonded indebtedness
for which General Fund revenues have been pledged as collateral. This situation is
mainly the result of decisive action taken by the City to reduce costs (e.g. layoffs, hiring
freeze, and personnel attrition), and an increase in revenues that was made possible by
investments in both economic development and municipal infrastructure by the City and
the Redevelopment Agency. However, some of the cost reduction and revenue
enhancing actions that were necessary in order to maintain financial stability are no
longer sufficient to sustain the annual operating budget needs.
Over the past few months, Council has been provided information regarding the current
fiscal state of the City and impending issues that will have significant financial
consequences in the future. The projected five-year General Fund cash flow presented
in January showed a structural deficit over the next five years, which ultimately resulted
in a negative reserve fund balance. The City is in a position now to make pre-emptive
decisions to mitigate the potential negative impacts and create a favorable environment
for improving the fiscal condition of the City.
DISCUSSION:
As described in the financial presentation “The Perfect Storm” on January 23, 2006, staff
would like to continue the discussion of some significant financial impacts that will affect
our City in the next couple of years. It is in the City’s best interest to implement a long-
term financial plan and consider taking action while there are still many options available
for consideration.
The following report outlines a number of alternatives/options for Council to consider in
developing a short- and long-term financial plan. Many of these alternatives will require
additional research and study to determine the actual impact on City services and service
levels. The City Council is requested to direct staff to proceed with those
alternatives/options they feel are most appropriate for the City to meet its short- and long-
term financial goals. City of Culver City, California
City Council Agenda Item Report
FUNDING NEEDS
Capital Funding Needs/Deferred Maintenance
Street Resurfacing Plan
Pavement Management Master Plan
Five-year Capital Improvement Plan
Tree-trimming Master Plan
Infrastructure Master Plan
Computer Replacement Fund
NPDES/TMDL – mandated stormwater cleanup issues
ISSUE:
Culver City has no dedicated revenue stream to fund its capital improvement and
deferred maintenance needs. Over the last several years, one-time monies have
mainly been used to fund a limited number of needed capital projects each fiscal
year, thus increasing the growing list of unfunded projects.
Deferred maintenance is another serious and growing issue facing the City. The
longer maintenance is put off, the more it will end up costing the City in the future.
Many of the City’s buildings are decades old and in need of significant
upgrades/upkeep. The Veterans Memorial Complex is one of these. In fiscal 2003-
04, funding in the amount of $268,700 was appropriated for maintenance and repair
activities at City Hall, Fire Station No. 1, and the Vets Building. The funding was used
specifically to paint each of these buildings.
Funds were approved in fiscal 2005-06 to initiate an assessment of City-owned and
maintained buildings, and also parks and park facilities. An RFP for assessment
services on the City’s buildings was prepared by Public Works. Responses to the
RFP are expected in April, and it is anticipated that findings should be available within
a couple of months after the consultants begin the assessment.
The Pavement Management Plan calculates the current backlog for street paving at
approximately $17 million. This would bring the City up to an A+ level, which means
all of the streets would be in an acceptable condition. Approximately $2.5 million is
needed in the coming fiscal year just to keep the backlog at the current level ($17
million). As with all deferred maintenance, the further in the future a street is
repaired/repaved, the more it will cost.
In fiscal 2005-06, the City started the process of setting aside funds for pavement,
slurry seal, and computer/technology replacement. This was accomplished by using City of Culver City, California
City Council Agenda Item Report
one-time funds from new development activities. It is not realistic in the City’s current
financial situation to allocate a dedicated revenue stream for these activities;
therefore, the City will once again need to rely on any one-time monies available to
continue funding these items.
Culver City, along with numerous other municipalities, is facing a growing issue
relating to cleanup of pollutants in relation to stormwater and urban runoff, specifically
those that enter Ballona Creek and empty into Santa Monica Bay. This cleanup effort
is an unfunded mandate by the State.
The City’s National Pollutant Discharge Elimination System (NPDES) program was
established to support the implementation of the Los Angeles County Municipal
Stormwater NPDES Permit, and to comply with federal and state environmental
(surface water quality) laws. This program covers all stormwater (and urban runoff)
pollution prevention and mitigation issues including the storm water plan check
reviews, public outreach, commercial and industrial stormwater inspections, attending
meetings, providing staff training, responding to complaints, applying for and
managing grants, and managing the Transportation Yard and Transfer Station’s
General Industrial Stormwater NPDES Permits. In-house staff was hired at the
beginning of 2005 to manage the NPDES/Stormwater Program. The stormwater
program manager oversees all of the stormwater issues within the City, including the
public facilities, construction sites, businesses, and residential areas. With the
adoption of total maximum daily loads (TMDLs) (surface water quality limits with strict
quantitative limitations), all the municipalities in Los Angeles County (and across the
state) are facing a situation where they may incur millions of dollars in financial
obligations to satisfy the regulations over the coming decade.
FISCAL IMPACT:
The fiscal impact regarding capital needs and deferred maintenance is staggering.
As mentioned in the previous paragraphs, the current financial impact is in the
double-digit millions. It is clear the City can no longer continue under-funding its
capital improvement program and deferred maintenance needs. Proposed funding
can come from recommendations mentioned under the “Revenue Enhancement”
section of this report, such as a bond issuance. While a dedicated funding stream
would need to be appropriated or allocated in order to pay for the bond payments,
one-time funding would be freed up to use for other one-time projects and/or
programs.City of Culver City, California
City Council Agenda Item Report
RECOMMENDATION/ACTION PLAN:
A. Proceed with assessment of City owned and operated buildings, including parks
and park facilities. Use City employees to assess and determine costs.
B. Continue to monitor legislation regarding the federal and state National Pollutant
Discharge Elimination System (NPDES) requirements.
C. Identify/research a dedicated revenue stream for ongoing and deferred
maintenance.
Operating Funding Needs
Building Maintenance and Repair
Transfer of maintenance programs from Redevelopment Agency to City
Transfer of grant funded positions to the General Fund
ISSUE:
In addition to capital improvement funding needs, there are a number of other funding
issues facing the City that need to be addressed. These include ongoing
maintenance and repair costs of existing City buildings, and Redevelopment Agency
projects that, per state law, can no longer be financed using RDA funds.
Also, due to expiring grants and/or the unpredictable nature of federal and state
funding, there are a number of grant funded positions and programs in which the
City’s General Fund will either need to absorb the costs or choose to eliminate the
position/program.
FISCAL IMPACT:
The City has had to absorb maintenance costs for Redevelopment Agency developed
projects over the last few years. Per state law, the Redevelopment Agency can only
pay these expenses for two years after completion of the project. Currently, the City
has absorbed approximately $62,000 in maintenance costs over the last three years.
Over the last two fiscal years, the City’s General Fund has absorbed approximately
$650,000 in ongoing salary and benefit costs alone due to the expiration of certain
grant programs.City of Culver City, California
City Council Agenda Item Report
RECOMMENDATION/ACTION PLAN:
A. As part of the project approval process, direct staff to identify ongoing
maintenance costs that will be transferred from the Redevelopment Agency to the
City over the next five years and set aside funding sources for these costs.
B. When considering any new project or building acquisition, direct staff to identify
ongoing maintenance needs and costs as part of the total fiscal impact and set
aside funding sources for these costs.
C. When considering the creation of grant funded positions and/or programs, staff
must identify the length of the grant funding. If for some reason, grant funding for
a position or program is no longer available; staff must get direction from City
Council to either secure funding from another source or eliminate the position(s) or
program(s).
Future Liability Funding Needs
Establish an adequate Self-insurance Fund future liability reserve (Worker’s Comp
and General Liability Programs)
Reporting retiree medical insurance future liability – required by Governmental
Accounting Standards Board (GASB Statement – 45)
CalPERS unfunded future liability
ISSUE:
The City has accrued significant future liabilities in the workers’ compensation and
general liability programs and retiree pensions and medical benefits.
Historically, the self-insurance fund has had a sufficient cash balance to off-set future
liability reserves|1010|. For more than ten years, the self-insurance fund has not collected
enough revenues from operating departments to cover expenses. As a result, the
cash reserves, once approximately $13 million, have been depleted. The rapid
increase in workers’ compensation costs was not unique to Culver City and it caused
a state-wide evaluation of the workers’ compensation system. Lawmakers
recognized that the system needed to be “fixed” and passed a large scale reform
package in April 2004 (SB 899), which has been effective in reducing costs and fraud.
In order to keep the self-insurance fund solvent, charges to departments were
increased approximately $2.7 million in 2005-06 (60% increase) and $1 million was
transferred into the self-insurance fund from the equipment replacement fund. A new
allocation formula – based on a department’s experience rather than payroll – has |1010| Future liability reserves are set aside to account for future medical treatment, temporary disability and
indemnity payments.City of Culver City, California
City Council Agenda Item Report
been created and will be implemented in fiscal year 2006-07. Plans are being
developed to re-establish a cash balance in the self-insurance fund and restore its
financial health.
The Governmental Accounting Standards Board (GASB) has issued Statement No.
45 (GASB 45), “Accounting and Financial Reporting by Employers for Post-
employment Benefits Other Than Pensions,” which addresses how state and local
governments should account for and report their costs and obligations related to post-
employment healthcare and other non-pension benefits (OPEB). GASB 45 does not
require that local governments establish a fund in their accounting system to
accumulate assets to satisfy their OPEB obligation. It only impacts the notes to the
financial statements (where the actuarially determined liability is disclosed along with
certain other actuarial information) and the government-wide financial statement. No
funding or accumulation of assets is required at this time. However, as a result of the
new GASB 45 rule, the government may be under pressure to fund the obligation in
advance rather than on the prior “pay as you go” basis. Failure to pre-fund the
obligation may impact future borrowing costs, credit ratings, and the overall financial
health of the organization. The City anticipates implementing the reporting of this
compliance in 2008. As part of the MOU negotiated with each bargaining group,
Culver City pays 100% of the medical insurance premiums for its retired employees.
With an aging workforce and increasing medical costs, this future liability could
potentially be quite substantial. The City needs to develop a plan to establish or
increase cash reserves to off-set future liabilities for retiree benefits and the self-
insurance fund.
FISCAL IMPACT:
The City should establish an adequate Self-insurance Fund Future Liability reserve
(Worker’s Comp and General Liability Programs). If the City were to fully fund the
current future liability, it would cost approximately $850,000 per year, amortized over
20 years.
The City should establish a reserve fund to off-set retiree medical and pension
benefits. The level of funding needed is dependent upon expected PERS rate
changes and actuarial determination of the City’s retiree medical liability.
RECOMMENDATION/ACTION PLAN:
A. Risk Management is tracking future liability changes and is performing an analysis
of the average annual change in the self-insurance fund’s future liability over the
past four years to estimate the approximate level of funding needed to off-set the
future liability.City of Culver City, California
City Council Agenda Item Report
B. Direct staff to return to City Council with more information once an actuarial study
on Culver City’s retiree medical benefit obligations has been completed. The City
is required to report this information in its Comprehensive Annual Financial Report
in 2008.
FINANCIAL ALTERNATIVES/OPTIONS:
Staff has prepared a summary of as many feasible actions/alternatives as possible to
assist in formulating plans/strategies that address these short- and long-term financial
needs.
NOTE: Many of the Recommendations/Action Plans mentioned below are
dependent on acceptance by the City’s bargaining groups or require a vote of the
people. They are not in any specific order.
Cost Reductions
1. Cost Reductions/Operating
Cafeteria Plan for Employee Benefits (with or without CalPERS)*
Place cap on accumulation of vacation, sick leave, etc. – pay off annually*
Implement two-tier retirement plans for new employees (Safety & Miscellaneous)*
Fund one-time (retirement) payoff costs with one-time dollars
Layoffs
Attrition
Freeze merit (step) increases
Program Reductions
* These items would be dependent on acceptance by the City’s Bargaining Groups
ISSUE:
Personnel and benefit costs make up the largest portion of the City’s budget at
approximately 80%. The average personnel cost for miscellaneous classified
personnel is $82,700, and the average personnel cost for public safety personnel is
$179,400 (includes salary and salary related costs). The City currently pays full
medical (with the exception of PERScare), dental, and vision premiums for
employees and their eligible dependents, except for Fire Safety and Fire
Management employees. The Fire Safety and Fire Management bargaining groups
are the only ones who have a current and adopted Memorandum of Understanding
(MOU) with the City, which requires contribution of 5% towards the City paid medical
insurance premiums. City of Culver City, California
City Council Agenda Item Report
During fiscal years 2002-03 and 2003-04, the City took the very difficult step of
eliminating 40 positions, along with other service reductions, in order to balance the
fiscal year operating budget. Most of the eliminated positions were vacant at the time
due to a hiring freeze that was put into effect in anticipation of this action. These
position eliminations and service reductions resulted in approximately $3.5 million in
cost reductions to the General Fund.
FISCAL IMPACT:
With the current increased personnel and benefit cost trends, Culver City soon will not
be able to afford to maintain its current staffing levels with the current funding
sources. This is especially true in light of the recent information received from
Personnel regarding Police and Fire initiative-mandated salary increases, which are
based on the City of Los Angeles and Los Angeles County public safety contracts.
For Police safety personnel alone, there will be an increased cost beyond what was
originally anticipated. Based on the historic trend of increases implemented by the
City of Los Angeles and Los Angeles County, the fiscal impact to our Safety
personnel costs may potentially be higher than what was originally anticipated.
RECOMMENDATION/ACTION PLAN:
Some of the Recommendations/Action Plans mentioned below would be dependent
on acceptance from the City’s employee bargaining units, as many relate to MOU
negotiated benefits.
A. Research and estimate the potential savings from implementation of items such
as: cafeteria plan for employee benefits, capping annual payout of leave costs,
and potential long-term savings from implementation of a two-tier retirement plan.
B. Identify and prepare a list of potential positions for layoffs (this would also take into
consideration “bumping” rights for Civil Service covered positions).
2. Cost Sharing*
Employee contribution for pension costs
Employee contribution for medical insurance
Establish policy of “vesting time” for eligibility of retiree medical insurance benefit
Employee-only coverage for medical/dental/vision benefit
* All of these items would be dependent on acceptance by the City’s Bargaining GroupsCity of Culver City, California
City Council Agenda Item Report
ISSUE:
Two of the largest growing costs that face the City are pension costs and medical
insurance premiums. The City took a significant hit with pension costs between fiscal
2003-04 and 2004-05 when the costs jumped approximately $3.6 million, which was
on top of an almost $1.3 million increase from fiscal 2001-02. This equates to
approximately a 2,054% increase over the last five fiscal years.
Medical insurance is another benefit the City has little control over, and it has
increased approximately 60% over the last five fiscal years. Also, Culver City
currently pays full medical insurance premiums for its retirees and their eligible
dependents, and equates to an approximate increase of 123% over the last five fiscal
years. Below is a chart showing the budgeted increases for medical, retiree medical
and pension costs for the General Fund for the last six fiscal years:
Significant Personnel Related Cost Increases
(General Fund Only)
$0
$1,000,000
$2,000,000
$3,000,000
$4,000,000
$5,000,000
$6,000,000
$7,000,000
2000-01 2001-02 2002-03 2003-04 2004-05 2005-06
Retiree Insurance Group Insurance PERS Contribution
Currently, the City has no “vesting” period for employees to complete before they are
eligible to receive the lifetime medical benefit when they retire. As long as an
employee has vested five years in the CalPERS system (which can be done at any
CalPERS agency) and are eligible to retire, they will receive this benefit from Culver
City. This means that a person could work for the City of Culver City for one day,
retire, and their medical insurance will be paid by the City of Culver City for the rest of
their life. This coverage extends to any eligible dependents they have.
With the current personnel and benefit cost trends, Culver City can no longer afford
its current staffing levels in the future years. The skyrocketing increase in pension City of Culver City, California
City Council Agenda Item Report
costs over the last five fiscal years has significantly exhausted the financial health and
viability of the City. These costs are ongoing and growing, and recurring revenues
cannot keep up with this growth.
FISCAL IMPACT:
Below are examples of potential cost savings the City could realize if they were able
to be implemented. Many of these savings include employee cost sharing with the
City and would need to be approved through the labor negotiation process with
all of the City’s bargaining groups.
Item/Description
Potential
Savings in
Year 1
Potential
Savings Over
a
5-Year Period
All Employees contribute 5% towards
their Medical Insurance Premium:
$305,000 $ 1,957,000*
Increase PERS Contributions from
Employees:
o Public Safety – 1% Contribution $168,000 $891,000
o Pubic Safety – 2% Contribution $336,000 $1,783,000
o Miscellaneous – Additional 1%
Contribution **
$ 262,000 $1,392,000
All Active Employees pay $5/month
toward Dental/Vision/Life Insurance
Premiums***
$119,000 $633,000
* Factors in a 12.5% growth rate in medical costs each year.
** Miscellaneous employees currently contribute 1% towards PERS retirement benefit.
*** Factors in a 3% growth rate on premiums each year.
RECOMMENDATION/ACTION PLAN:
A. Consideration of partnering with bargaining groups to initiate, or continue,
contribution of a percentage of employee pension costs. (Miscellaneous
classifications already contribute 1% towards PERS costs. Gain buy-in to
increase this to 2%, and also have public safety pay at least 2% portion for their
PERS costs.)
B. Consideration of partnering with bargaining groups to initiate, or continue,
contribution of medical insurance premiums (5% or 10% contribution from
employees). City of Culver City, California
City Council Agenda Item Report
C. Consideration of partnering with bargaining groups to limit medical/dental/vision
insurance coverage to employee only.
D. Direct staff to develop a policy for a required/specified length of employment
(vesting) an employee must be employed with Culver City before being eligible to
collect lifetime retiree medical insurance benefit. (Currently there is no length of
employment required).
Revenue Enhancements
1. Ballot Initiated
Increase City Transient Occupancy Tax (TOT)
Increase Utility User’s Tax (UUT)
Implement Parcel Tax – to fund Public Safety
Implement ¼% Sales Tax increase (Transaction Tax)
Implement Benefit Assessment District for landscaping, streetlights, etc.
Increase Business License Tax
General Obligation Bond issue for capital needs
ISSUE:
Historically, Culver City has rejected the action of placing an increased financial
burden on residents to increase its recurring revenue stream in order to cover ever
rising operating costs. Also, Proposition 218, enacted in 1996, took away the right of
a city’s elected body to increase any tax rates without a popular vote of its residents
and greatly complicated the process involved in implementing an Assessment District
or in increasing the fees charged for services in an existing Assessment District.
With mounting costs, especially in the areas of capital improvement, deferred
maintenance, and personnel/benefit costs, it is recommended that the City consider
generating ongoing revenue streams to sustain the budget need. All of the above
items, though, would need to be placed on the ballot for a vote by Culver City
electors.
Benefit Assessment Districts are intended to charge those whose property is
receiving a direct and measurable City service where the relative “benefit” to the
property owner can be computed. One Benefit Assessment District that could be
implemented city-wide would be a Paramedic Benefit Assessment. Other Benefit
Assessment Districts could be implemented for tree-trimming, streetlights, parks, and
landscaping. These may be able to be city-wide, or implemented on a smaller
neighborhood-by-neighborhood basis depending on benefit/need. City of Culver City, California
City Council Agenda Item Report
The Culver City Municipal Code authorizes the City to levy a tax for the privilege of
occupying lodgings on a transient basis. The current Transient Occupancy Tax
(TOT) rate is 12%. Also, the Culver City Municipal Code authorizes the City to collect
an 11% Utility User’s Tax (UUT) on electricity, water, gas, cable, and telephone and
cellular/mobile telephone service.
FISCAL IMPACT:
Below are financial projections that may be realized (most annually) if Culver City
were to implement and the electors were to approve, one or more of the above listed
items:
Increase Transient Occupancy Tax 1% (from 12% to 13%) - $ 185,000
Increase Utility User’s Tax ¼% (from 11% to 11.25%) - $ 300,000
Increase Business License Tax (~10% Increase) $825,000
Implement Parcel Tax ($100/Parcel/Address – collected by County) $2,200,000
Increase Sales Tax by ¼% (Transaction Tax) from 8.25% to 8.5% $3,700,000
Benefit Assessment District Based on Benefit
o e.g. – Paramedic Benefit Assessment District (full
operating cost recovery with escalator)* $4,500,000
o e.g. – City-wide Tree-trimming (annual cost recovery) $800,000
Issuance of Bond for Capital Improvement TBD – Amount Open
* This program currently generates approximately $1,000,000 in ambulance billings
RECOMMENDATION/ACTION PLAN:
A. It is recommended that the City Council direct staff to begin the process of
researching any of the above identified items that best fit the financial needs of the
City. Additionally, if the City Council selects any of these items please remember
that they require a vote of the people, and a determination to hold a special
election in November 2006 or wait until April 2008 would need to be made.
B. Conduct a full study to identify the total amount needed to fund all outstanding
capital improvements and deferred maintenance costs. The findings will be
presented to the City Council for consideration.
2. City Initiated
Review and Increase/Adjust all applicable fees and charges not restricted by Prop
218
Maximize Utilization of Prop A & C funds – purchase funds from other citiesCity of Culver City, California
City Council Agenda Item Report
ISSUE:
There are some service fees and charges the City collects that do not fall under the
restrictions set forth in Proposition 218, and the City must regularly review and update
these fees and charges as applicable to cover and recoup the costs associated with
the services being given. General Fund service charges, though, cannot exceed the
cost of service, including overhead.
The City must remain cognizant of the fact that it needs to stay competitive with
surrounding jurisdictions, while also remaining mindful of the current condition of the
economy, therefore not overburdening its customers.
A large majority of cities are eligible to collect Prop C funds from the County. Many of
these cities, often smaller “bedroom” communities, do not fully utilize these funds and
“sell” them to other cities at a determined “cost on the dollar.” Culver City can
purchase these funds at 50 to 60 cents on the dollar. This will provide Culver City
with more buying power per dollar for street improvements.
FISCAL IMPACT:
Unknown at this time. Staff is currently working with all departments to determine
potential fiscal impact.
RECOMMENDATION/ACTION PLAN:
A. The City Controller’s office is currently working with all departments along with the
City Attorney’s office to establish a systematic process to include annual fees and
charges update. The goal is:
Include this process as part of the annual budget adoption.
Consolidate all the resolutions and transfer items from the Municipal Code,
where applicable, to one city-wide fees and charges resolution.
This process will enforce the review and adjustment of fees and charges
annually, when applicable. It is recommended that, where applicable, a
CPI increase should be built into the formula to allow the fees and charges
to automatically increase by this amount. By doing this, it will ensure that
Culver City is reimbursed for all allowable costs for services rendered.
The fees and charges schedule will be posted on the City’s website, which
will be easily accessible for reference by staff and customers.
B. Direct staff to explore the feasibility of “purchasing” available Prop C funds from
other cities City of Culver City, California
City Council Agenda Item Report
Organizational Efficiencies
Implement a policy to hold two (2) City Council meetings per month coupled with
Redevelopment Agency
Implement a two-year Budget cycle
Collect all revenues due the City
Reduce service levels or ensure that departments have the appropriate staffing
level and resources to meet their mission and objectives
Provide city-wide reorganization plan within 60 days
Recruit Risk Manager
Consultant Evaluation of the City Treasurer’s Office
Maximize the use of e-commerce where feasible, including for the collection of
certain permits, licenses, and fees
Contracting out some responsibility within applicable departments
ISSUE:
“Work smarter not harder.” Culver City employees are among the finest and most
dedicated employees in the area. The elimination of positions that took place as part
of the budget cutbacks in fiscal years 2002-03 and 2003-04, and the increase in
service levels has placed an additional burden on current staff. Consequently, it is
more important than ever that all operating departments are “working smarter not
harder” in order to maximize efficiency and productivity. There are a number of areas
in which the City can take advantage of technological advancements to increase
revenue collection and facilitate the flow of information leading to an even greater
level of efficiency and productivity. Additionally, the City should evaluate its
organizational efficiency and internal procedures to ensure effective work-flow and
lines of communication between and within operating departments.
By adopting a practice of holding only two City Council meetings per month, staff will
be able to provide more in-depth staff reports, conduct in-house analyses, address
critical issues immediately, and work with the community and City Council more
effectively. A pilot program of 180 days is recommended.
With the implementation of a long-term financial plan, a two-year budget cycle will be
easily accomplished. In a two-year budget cycle, full budget preparation will take
place every other year rather than annually. It would also give each department a
stable two-year financial plan to achieve their goals and objectives.
There are a number of tools that the City is already in possession of or is developing
to increase internal efficiency. For example, in 1999, a consultant was hired to
evaluate the City’s organizational efficiency and internal processes of all departments. City of Culver City, California
City Council Agenda Item Report
Additionally, the Information Technology department is working with the City
Controller’s Office and the City Treasurer’s Office to develop a suite of financial
reports to be used as tools for sound financial management. IT is also working on an
e-commerce program, which will reduce paperwork, expedite the application process,
and increase the efficiency of revenue collection.
FISCAL IMPACT/RECOMMENDATION/ACTION PLAN:
A. Direct staff to develop a City Council Policy for number of meetings to be reduced
to two each month, and implement a 180 day pilot program. A policy regarding
number of City Council meetings per month would reduce City Council Members
and staff time spent in meetings. This should enhance the efficiency and quality
of the meetings.
B. Determine what it would take to implement a two-year budget process. The
implementation of a two-year Budget cycle would reduce City Council Members
and staff’s time, which would provide a better tool to manage the City’s resources
and allow more time to be spent on more in-depth financial planning and analysis.
C. Have each department perform a self-evaluation to determine if the most
appropriate staffing level is being utilized to meet department’s mission and
objectives. A cap should be placed on service level increases if resources are
insufficient and/or unavailable to meet the need.
D. Increase the use of technology to generate and distribute financial reports in a
timely manner and maximize the use of e-commerce including: purchasing and
licensing software, annual maintenance and software updates, and staff time to
implement. Overall, it is expected that increased use of technology will increase
efficiency and productivity.
Policy Issues
Transition from 96% spending assumption to 100% spending assumption
Increased diligence in pursuing grant funds and timely drawdown of grant funds
Impact of State revenue take-away
Seek funding for impact of Mandated Public Safety Salary Initiative
Review Public Safety Salary Initiative for Possibility of Amendment
Review Purchase Card Policy
Review City Hall Security procedures
Research the Feasibility of Contracting-out some City Services
Ensure financial viability of Enterprise and Internal Service Funds
Hiring freeze with exceptions presented to the City Council
Re-evaluate priority of the City’s services to the community
Update the City Financial PolicyCity of Culver City, California
City Council Agenda Item Report
ISSUE:
The City faces a number of other policy issues that have a significant impact on the
financial health of the General Fund. Unfortunately, not all of these issues are within
the City’s control. In recent years, the State has “borrowed” money from cities in
order to balance its budget. This State mandated confiscation of revenues has had a
negative impact on the City’s cash flow and has forced the City to reduce operating
expenses. In addition, federal budget cuts, which negatively impact the amount of
grant fund monies awarded to Culver City, cause the General Fund to absorb on-
going costs.
Fortunately, the City does have control over most of the following policy issues.
Since fiscal year 1997-98, the City has budgeted assuming that only 96% of
appropriated funds will be spent annually, based on historical trends. The 96%
spending assumption is difficult to achieve as departments are finding it increasingly
challenging to maintain at 96% spending pattern and achieve their goals and
objectives. Therefore, it is crucial to progressively reduce the percentage of this
assumption until ultimately the City is able to appropriate 100% of its operating
expenses.
Over the past six months, the CAO’s office has worked with a number of operating
departments including Public Works, Parks, Recreation and Community Services,
and the City Treasurer’s office, to develop a comprehensive policy that lays out
guidelines for grant funds. This policy is fully inclusive, outlining procedures from
when grant funds are awarded until the project is completed and all grant funds are
received. The CAO’s office has also taken on a lead role in managing the operating
departments to ensure that the guidelines are followed, the City fulfills all of the
requirements of the granting agency, and all grant funds are collected in a timely
manner.
FISCAL IMPACT:
In order to transition from a 96% to a 100% spending assumption over an eight year
period, the City would need to increase its annual General Fund appropriations by
approximately $375,000 each fiscal year until the goal of 100% is reached.
An increased diligence in pursuing grant funds and ensuring timely drawdown of grant
funds may result in an increase in awarded grant funds. Staff is in the process of
finalizing a comprehensive grant policy to ensure that grants are tracked and grant
requirements are met. City of Culver City, California
City Council Agenda Item Report
The impact of State revenue take-away has been $971,000 in 2004-05 and $971,000
in 2005-06. The passage of Proposition 1A in November 2004 lessens the ability of
the State to take funding from City governments.
RECOMMENDATION/ACTION PLAN:
A. Transition to a 100% spending assumption over eight (8) years, beginning in fiscal
2007-08, by increasing the assumption by ½% per fiscal year.
B. Encourage departments to aggressively pursue grant funding while considering
the long-term financial impact to the General Fund, and enforce the recently
revised grant fund policy to ensure the City receives all grant funds it is owed in a
timely manner.
MOTION:
That the City Council:
Staff is seeking direction to work with the Budget Subcommittee on any
recommendations the City Council would like to move forward on for further analysis
and discussion. Additionally, staff is looking for suggestions that City Council may
want to include for further consideration.