HomeMy WebLinkAboutItem 5.1 EstuaryBridge&VesselFee
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CITY OF DUBLIN
AGENDA STATEMENT
City Council Meeting Date: Apri125, 1994
SUBJECT:
Written Communication: Request from Alameda County Public
Works - Support of AB 3159 Regarding Bridge and Vessel Fees
to Fund Estuary Bridge Maintenance and Operations
Report by: Public Works Director Lee Thompson
1) / Letter from Donald LaBelle, Public Works Director,
Alameda County, including AB 3159 Fact Sheet
2) / Assembly Bill 3159
3) /Draft Resolution Supporting AB 3159
4) Copy of Resolution No. 138-88 consenting to inclusion in
/ an Alameda County Service Area for Bridges
RECOMMENDA TION: ~eview request and take appropriate action.
\
EXHIBITS ATTACHED:
FINANCIAL STATEMENT:
No cost to City; however, this measure could cost Dublin's
residents up to $2.00 per vehicle per year. As noted in Mr.
LaBelle's letter, the County is proposing a maximum $2.00
individual vehicle license fee and a vessel fee of up to $10.00 to
fund operation and maintenance of the bridges. The vehicle and
vessel fees would affect registrations in.Alameda County only.
DESCRIPI'ION: The history of the Oakland/Alameda Estuary bridges dates back
to 1896 when Alameda was the shipping port for Oakland and a relatively unrestricted means of
transporting goods from Oakland to the port was needed. While the bridges were constructed by the
Corps of Engineers, the County of Alameda needed the bridges for improved access between Oakland
and Alameda and agreed to the responsibility of maintaining and operating the bridges once they were
built. There are a total of five Estuary bridges; however, the State owns and funds the maintenance
and operation of the Bay Farm Island bridge (which is located on a State highway) and the Corps of
Engineers owns and funds the maintenance and operation of the railroad bridge. The other three
bridges are presently funded by the County.
Until Fiscal Year 1992-93, Alameda County received approximately $1.4 million annually in Special
District Augmentation Funds (SDAF) for operation and maintenance of the three bridges which span
the Oakland-Alameda Estuary. The State's shifting of property tax revenue eliminated these funds
completely by Fiscal Year 1993-94, and Alameda County is currently paying $1.8 million annually to
operate and maintain the Estuary bridges, at the expense of other road maintenance projects.
In 1988, the County and the 12 cities within the County established a County Service Area (CSA) to
support the bridges. The Dublin City Council did adopt Resolution 138-88 consenting to inclusion in
the CSA (Exhibit 4). This CSA was formed as a vehicle to accept the SDAF funds from the State.
When the County proposed an assessment for the CSA in 1993, 9 of the 12 Alameda County cities
vetoed the concept of bridge parcel charges as inequitable and not appropriately linked to bridge
usage.
The subject of bridge tolls has been explored by the County; however, collection of tolls was
determined to be infeasible due to the level of traffic delay that would be caused, as well as the fact
that a toll system would take a number of years to implement.
,
County Road Funds are likewise unavailable for this purpose, as the County already has a tremendous
backlog of work that needs to be accomplished in the unincorporated areas.
The County is presently ineligible for Federal funding for bridge maintenance and operation, as
Federal funds are restricted to bridges which operate below a 50% efficiency level. The County
operates these bridges at a very high level of efficiency and safety and was, in fact, recently
commended by the State bridge inspection team for exemplary performance. In order to obtain
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Federal funding, the level of maintenance and operation would need to drop to a point that would be
considered unsafe.
The County feels that the $2.00 per vehicle license fee and the $10.00 vessel fee would be the most
equitable means of funding the bridge operation for the time being. The fees would therefore be
collected from potential bridge users on a County-wide basis and would not be collected from
property owners or strictly from the Cities of Alameda and Oakland.
Staff therefore recommends that the City Council review the County's request for support of AB 3159
and take appropriate action. If th,e City Council wishes to support the County's request, the City
Council should adopt the draft resolution, Exhibit 3.
a:(9394)laprlllagstJl j9
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RECEIVED
APR 4 1994
COUNTY OF ALAMEDA
PUBLIC WORKS AGENCY
399 ElmhurstStreet · Hayward. CA 94544-1395
(510) 670-5480
CITY OF DUBUN
March 31, 1994
Richard C. Ambrose
City Manager
City of Dublin
P. O. Box 2340
Dublin, CA 94568
Dear Mr. Ambrose:
I am writing to ask for your City's support for AS 3159. If adopted, this
legislation would authorize the County of Alameda to levy a motor vehicle
fee and a vessel fee to support operation and maintenance of the three
bridges that span the Oakland/Alameda Estuary.
As you may know, State shifting of property tax revenues in 1993 eliminated
the revenue source used by the County since 1988 to support bridge operation
and maintenance (Special District Augmentation Funds). Under the guidance
of the Alameda County Board of Supervisors, the Public Works Agency has been
actively seeking an alternative financing source to support bridge
operation.
In August 1993, Public Works proposed that an assessment be levied under CSA
B-1988-1, the CSA established by the County and 12 cities in 1988 to fund
bridge operation and maintenance. This proposal, however, did not garner
the City support needed under provisions of the CSA to be adopted by the
Board of Supervisors.
CalTrans and County engineers determined in January 1994 that proposals to
fund bridge operation by collecting tolls were infeasible due to
unreasonable levels of traffic delay and safety that would be created if
tolls were implemented.
The U.S. Coast Guard completed its review of bridge operations in February
1994 and indicated that one shift of operation could potentially be
discontinued; however, total savings from this operational change are
estimated at only $100.000. or less than 6 percent of the total annual
operating cost of $1.8 million.
Given what we have learned in the last year, Public Works considers a motor
vehicle license fee of up to $2 per vehicle and a vessel fee of up to $10
per vessel the most equitable method to fund bridge operation and
maintenance in the short-term. The attached fact sheet gives additional
information on the provisions of AB 3159.
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lJct:ter ~ J:::m\. ~
City Manager
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March 31, 1994
Your City's support for this measure would greatly improve its probability
of passage in the Legislature. Furthermore, your support would be
consistent with the 1988 Mayor's Conference agreement and your City Council
resolution in which your City agreed "to assist the County is seeking means
to mitigate the cost of operating and maintaining the Oakland/Alameda
estuary crossings, the cost of which are borne entirely by the County."
I urge you to write Assemblywoman Barbara Lee (the Bill's sponsor) or
Assemblyman Richard Katz (Chair, Assembly Committee on Transportation) as
soon as possible to indicate your support. You can write to either of these
members of Assembly at P.O. Box 942849, State Capitol, Sacramento, CA
94249-0001.
In addition to letters, a resolution by your City Council in support of the
legislation would be extremely helpful in our efforts to obtain its passage.
If I can provide you with further information, please call me at 670-5455.
Yours truly,
~~-
Donald J. LaBelle
Public Works Director
DJL:PJS:pr
Enclosure: AB 3159 Fact Sheet
cc: Lee Thompson, Public Works Director
City of Dublin
B01512/B01515
-AS 3159 FACT SHEET e
March 17, 1994
The County of Alameda is asking the Legislature to grant Counties the authority to levy a vehicle
license fee up to $2 and a vessel fee of up to $10 to pay for the operation and maintenance of movable
span bridges. This authority will allow the County of Alameda to replace bridge revenue lost when the
State shifted local government property tax revenue away from special districts.
Bridge Revenue Lost with State Shift
Until fiscal year 1992-93, Alameda County received approximately $1.4 million annually in Special
District Augmentation Funds (SDAF) for operation and maintenance of the three Estuary Bridges.
State shifting of property tax revenue eliminated these revenues completely by fiscal year 1993-94.
, Alameda County pays $1.8 million annually to operate and maintain the Estuary Bridges at this time.
Why Vehic1e License and ,Vessel Fees?
1. Alternative Revenue Sources Not Feasible
County Road Fund -County Road Fund monies are required to perform critically needed road
improvements in the unincorporated area. At this time, the County has a $25.8 million backlog
of road work in the unincorporated area. With the loss of bridge funding, the Agency has
reduced its work program to only essential maintenance and those capital projects with federal
matching dollars, cut back in streetsweeping, street sealing and overlaying, and will not have
the funds to perform mitigation for the Castro Valley BART station.
Bridge Tolls n Analysis by both the County and CalTrans show installing a toll collection
system on the Estuary Bridges would cause excessive vehicle delay and unacceptable levels of
traffic congestion, air pollution, and.1oss ofbusin~~. In addition, CalTrans reports that seven
to fifteen years would be required to implement a toll collection sy~tem. . " .
. '
CSA' parcel charges~In 1988, Alameda County anc:l12 cities established a CoUnty Service ;
Area to support the Estuary Bridges. However, levying assessments under the CSA requires the
consent of all 12 cities, nine of which vetoed the concept of bridge parcel charges in 1988 as
inequitable and not appropriately linked to bridge usage.
2. Operational C!,sts Fixed by Federal Mandate
At present, the U.S. Coast Guard requires the County to open the draw bridges "on signal" from
vessels 24 hours a day. A recent Coast Guard analysis of bridge opening logs indicated that it may be
feasible to eliminate one 8-hour shift if the County establishes a 4-hour standby system for night-time
bridge tending. However, this level of service modification is minor and would only save the County
approximately $100,000.
AD 3159 V ehic1eN esse} Fees Equitable for Bridge Funding
At a policy level, vehicle and vessel fees are equitable mechanisms to pay for these facilities for two
reasons: 1) Reasonable fees are collected from potential bridge users (motor vehicles and vessels) and
not from property owners. 2) Fees are collected County-wide and not exclusively from the
unincorporated area or the Cities of Oakland and Alameda, consistent with a 1988 policy agreement
between ~e Cities and the County that designated the Estuary Bridges as "regional facilities" serving
all of Alameda County and the surrounding area.
For further information, call Patly Spangler, Alameda County Public Works, at (510) 670-
5470 or Steve WaUauch, Lynn Suter and Associates, at 442"()412.
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CAIJFORNIA J.,ECIUA Tt1llE-l~ BECUt.AB SESSIO;-;
ASSD-fBLY BILL
No. 31.59
Introduced by Assembly Mem.ber Lee
February 23, 1994
::
An act to add Article 5.5 (commencing with Section 1145)
to Chapter 5 of Part 2 of DiviUon 1 of~ and to add l'art 5.8
(commencq with Section 11161) to Division 2. of, the
Revenue and Taxation Code, and to add Sections 9WO.13 and
9853.05 to the Vebicle Code! relating to movable span bridge~.
J..EGlSLATlVE COf,.'NSEL'S DICEST
AS 3159~ ~ introduced, Lee. Movable span bridges:
county undocumented vessel surcharge: county vehicle
surcharge.
Existing law authorizes any COWlty to impose a property tax
assessment on any vessel documented in that county and on
any undOCU1l).ented vessel that is habitually moored in that
county when not in service. Existing law also imposes
registration and renewal fees for undocumented v~.
Existing law imposes :registration and license fees far the
privilege of operating upon the public highways in this state
any vehicle of a type that is subject to registration lmder the
Vehicle Code. Existing law authorize$ a specified county to
impose a local registration fee on any vehicle registered
within the CO'Utlty, and a local vehicle liceuse fee surcharge,
as specified, both of which are collected by the ~t
of Motor Vehicles and distributed to the county. as provided.
This bill would llut:h0ri2e any oounty with one or more
movable span bridges. upon meeting specified reqwement:s;
to iDlpose a county undocumented vessel surcllarge of up to
$10 per vessel~ I1S provided. and a cmmty vehicle license fee
surcharge of up to n per -vehicle, as provided. The bill would
also authorize any COtmty with one or more :movable span
9990
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AB 3159
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1 (C) That federal regulations and permits require the
2 county to main,tsin certain hours of operation for vessel
3 traffi~ thus restricting the countY"s ability to reduce or
4 elluonate the cost of bridge ~ation. .
5 {2} The board of ~ adopts a county
6 undocuxD.e1lted vessel fee ordinance or resolution
7 imposing the fee.
8 (c) 'The fee imposed pursuant to this section shall
9 apply to any origina! application for a number for an
10 undocwnented vessel ()CCUtri11g on or after the January
11 1 following the a.doption of the ordinance or resolution
12 pursuant to paragraph (2) of subdivision (b) and to any
13 renewal of a certificate of number for an undocumented
14 vessel with an expiration date on ar o.fteT thatJanuarr l.
15 (d) After deducting all costS inCurred pursuant to this
16 section, the department shall distribute the revenues tQ
17 the county. '!be QltlOlJ.Jlt of revenUe5 distributed to each
18 countY shall. be equal to the net amount of revenues
19 received from that county that were deri\"ed from the
20 Unposition of the additional fee,. .
21 (e) Money allocated to the county pursuant to this
22 section shall be expended only for the operatiOn and
23 roainten.8Dce of the designated movable span bridg~
24 inclUding oapital outlay, security, and tn.ain~ costS.
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RESOLUTION NO. M94
A RESOLUTION OF THE CITY COUNCIL
OF THE CITY OF DUBLIN
SUPPORTING AD 3159 (VEHICLE AND VESSEL FEES
TO FUND OPERATION AND MAINTENANCE OF
THREE OAKLANDI ALAMEDA ESTUARY BRIDGES)
WHEREAS, in an agreement negotiated by the Mayors' Conference between Alameda
County and the Cities of Alameda County, the Cities agreed " . . . to assist the County in seeking
means to mitigate the cost of operating and maintaining the Oaklandl Alameda Estuary crossings, the
cost of which are currently borne entirely by the County. . ."; and
WHEREAS, by its Resolution No. 138-88, the City Council consented to Dublin I s
inclusion in the County Service Area for bridges; and
WHEREAS, Assembly Bill 3159 proposes use of a maximum $10.00 vessel fee for
Alameda County vessels and a maximum $2.00 vehicle license fee for Alameda County vehicles as a
means of providing funding to maintain and operate the bridges; and
WHEREAS, prior to levying the fees, the Alameda County Board of Supervisors shall
make specific findings to determine that no other funding sources are available; and
WHEREAS, the City Council has determined that this method of funding bridge
maintenance and operations is the most equitable means of providing such support;
NOW, THEREFORE, BE IT RESOLVED that the City Council of the City of
Dublin does hereby support the passage of Assembly Bill 3159.
PASSED, APPROVED, AND ADOPfED this 25th day of April, 1994.
AYES:
NOES:
ABSENT:
Mayor
ATIEST:
City Clerk
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RESOLUTION NO. 138- 88
A RESOLUTION OF THE CITY COUNCIL
OF THE CITY OF DUBLIN
**************************
CONSENTING TO INCLUSION IN THE ALAMEDA COUNTY,
COUNTY SERVICE AREA FOR BRIDGES
WHEREAS, in an agreement negotiated by the Mayors' Conference
between Alameda County and the Cities of Alameda County, the Cities agreed
"... to assist the County in seeking means to mitigate the cost of
operating and maintaining the Oakland/Alameda estuary crossings, the cost
of which are currently borne entirely by the County ..."i and
WHEREAS, the City Council has determined, in accordance with the
Plan for the Formation of a County Service Area for Bridges attached
hereto as Exhibit A, that a County Service Area for Bridges, for the
maintenance and operation of the High Street, Park Street and the Miller-
Sweeney Bridges, would benefit all of Alameda CountYi and
WHEREAS, the City Council has further determined that although the
Alameda County Board of Supervisors may levy special assessments on
properties within a County Service Area, the Board will not institute such
charges within the incorporated areas of Alameda County without the
affected City or Cities prior review and consenti and
WHEREAS, County Service Area Law states that a city may be included
in a county service area if a Resolution of Consent, adopted by the
majority vote of the membership of the city legislative body, is filed
with the Clerk of the Board of Supervisors.
NOW, THEREFORE, BE IT RESOLVED that the City Council of the City of
Dublin, by this resolution, hereby consents to and requests inclusion in
the Alameda County, County Service Area for Bridges.
PASSED, APPROVED AND ADOPTED this 24th day of October, 1988.
AYES:
Councilmembers Hegarty, Moffatt, Snyder, Vonheeder
and Mayor Jeffery
NOES:
None
ABSENT:
None
~~
ATTEST:
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EXHIBIT A
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PLAN FOR '!HE FOIM\TION OF A CXXJNT:{ SERVICE AREA FOR BRIOOES
BACKGRClJND
The COlUlty mintains three estuary bridges as a result of agreements with the
Army Corps of Engineers. OJrrently, the COunty's Road pund bears the entire
annual $1.4 million cost of maintaining and operating these bridges. Efforts
by the County to transfer responsibility for the bridges to federal am state
agencies have not been successful. It will be difficult for the Road Fund to
continue to maintain the necessary levels of funding for the operation am
mintenance of these bridges in the future as existing Road Fund sources are
expected to decrease annually by as much as $3.3 million. Government Code
Section 25210.4a specifically authorizes CSAs to provide those miscellaneous
,extended services relevant to bridge construction, improvement and
maintenance.
The formation of the CSA would allev iate : the inpact of these revenue losses by
enabling the COlUlty to use Special District Augmentation Funds (SOAF) for
br idge maintenance and operation. Prel iminary discussions with the COunty
Administrator's Office indicate that projected SD1\F grCMth is expected to be
sufficient to fund the maintenance aOO operation of the bridges for the near
future. The Local Agency Formation Commission (LAFCO) and the Board of
Supervisors require that the benefit area of the proposed CSA include the
incorporated and unincorporated areas of the County before the CSA can be
established. Also, an election is not required to form a CSA nor to receive
SDAF revenues.
A number of studies by various agencies, including traffic studies, indicate
that these bridges are used by residents throughout the County. The Mayor's
Conference has determined that although these bridges lie entirely within the
incorporated limits of the cities of Oakland and Alameda, they serve the
entire COlUlty arXl state in the Mayors' Formula Agreement that the cities agree
to assist the COunty in seeking means to mitigate the cost of operating and
maintaining the bridges.
In order to provide this assistance, all Alameda County cities are being asked
to pass a Resolution of Consent, requesting inclusion in the proposed CSA to
provide a secure Source of funding for the maintenance arrl operation of these
bridges. Upon receipt of the cities' Ne!solutions of COnsent, the County may
then begin the CSA formation process, which will include public hearings and
notices in compliance with County Service Area LaW (Goverrunent COde section
25210.1 et seq) .
On June 28, 1988, the Alameda County Board of supervisors approved in
principle the formation of the County Service Area for Bridges. At the
meeting of the Alameda County City Managers held on september 21, 1988, the
ci ty managers approved in concept the formation of a Countywide COunty 5erv ice
Area (CSA) for Bridges.
FINANCING
It is anticipated that the grCMth of the SDAF will be sufficient to fund the
maintenance and operation of these bridges at their current level for the
foreseeable future. If SDM' r,evenues should proye insufficient to support the
full cost of the bridges at sane point in the future, negotiations with the
ci ties to levy special assessment fees would be reopened. Road P'u1'Xl monies
will be used to supplement the SMF fW1ds as needed, am efforts will continue
to obtain arrj available State or Federal bridge JtCogram funds.