The URL can be used to link to this page

Home My WebLink About2006-0413 Study Session Packet CITY COUNCIL STUDY SESSION A G E N D A Thursday, April 13, 2006 at 5:15 p.m. Council Chambers, 1175 East Main Street 1. Library District Election In compliance with the Americans with Disabilities Act, if you need special assistance to participate in this meeting, please contact the City Administrator's office at (541) 488-6002 (TTY phone number 1-800-735-2900). Notification 72 hours prior to the meeting will enable the City to make reasonable arrangements to ensure accessibility to the meeting (28 CFR 35.102-35.104 ADA Title I). Council Communication Background Information on Library District Election Meeting Date: April 13, 2006 Primary Staff Contact: Gino Grimaldi Department: Administration E-mail: grimaldg@ashland.or.us Contributing Departments: n/aSecondary Staff Contact: n/a Approval: Gino Grimaldi Estimated Time: 60 Minutes Statement: Ronnie Lee Budge, the Library Director for Jackson County has requested time with the City Council to discuss the possible formation of a library district that would provide a stable source of revenue for the operation of libraries in Jackson County. If the city of Ashland would like to be included in the district, a resolution consenting to be included in the district would need to be adopted by May 17, 2006. The suggested election date for the formation of the district is November 7, 2006. Background: This issue was discussed at the City Council meeting of March 21, 2006. At that time the City Council requested additional information regarding the formation of a Library District. See attachments prepared by Jackson County Library Services. Related City Policies: None Council Options: The City Council may want to consider providing initial feedback regarding the creation of the formation of a library district and, if desired, direct staff to schedule consideration of a resolution consenting to the formation of district prior to May 17, 2006. Staff Recommendation: None Potential Motions: None Attachments : ? Attachment I – Background Information on Funding & Possible District Election for Ashland City Council Meeting ? Attachment II – Measure 5 Gap Estimate FY 04-05 ? Attachment III – Property Taxes in Oregon & Measure 5 Compression ? Attachment IV – Library District Feasibility Report JACKSON COUNTY Library Services Background Information on Funding & Library District Election for Ashland City Council Meeting April!3, 2006 To the Ashland City Council: Thank you for the opportunity we had to meet with you a few weeks ago about a possible Library District election. We look forward to meeting with you again on April 13. This memo is intended. to give you more information about the proposed Library District and answer questions raised earlier. Recommendation for Library District The Library Advisory Committee has recommended that the Board of Commissioners put a Library District proposal on the November 7 ballot. If approved by the voters, it would create a new, independent district with an elected five-person Board of Directors and a permanent tax rate of$1.l8 per $1,000 of assessed value dedicated to library service. The Library District would be separated from and independent of Jackson County governance. Economic Feasibility Report Before this measure may be put on the ballot, Oregon law requires an economic feasibility study. The purpose of the feasibility study is to provide preliminary cost estimates and property tax rates for the proposed plan of library service. To satisfy this requirement, and to assist the Library Advisory Committee with its recommendations, a Jackson County, Oregon Library District Feasibility Report was prepared by Ruth Metz Associates. Ms. Metz is a library consultant who has conducted similar feasibility studies and strategic plans for many other public libraries in Oregon and California. A complete copy of the report has been sent to city administrator Gino Grimaldi for your use, and the executive summary is attached as Exhibit A. City Council resolutions Oregon law also says that before any city may be included within a proposed new district, the city council must first pass a resolution of approval. The Library Advisory Committee respectfully requests that your City Council consider adopting such a resolution. A sample city resolution is attached. If adopted, a certified copy should be sent to the Jackson County Board of Commissioners, preferably by mid-May. (See q & a below for more information about the deadline for submission.) April 5, 2006 Page 2 Questions During preliminary background meetings with city councils in February and March, the Library Advisory Committee was pl,eased to hear and respond to many questions about the proposed district, plan of service, tax rate, and likely impact on each community. Below are answers to the questions most commonly asked. We look forward to meeting with you again and answering any additional questions you may have. What is the total library budget now, and what share does each branch get? The library's total budget for 2005-06 is about $8 million, of which about $7.55 million is from the county general fund. The other $460,000 is from fees, grants, donations, rent, and other miscellaneous sources. See Exhibit B for Jackson County Library Use Statistics by Branch and Exhibit C for 2005-06 Budget Allocation by Branch. What services would be provided by the new Library District? The Library Advisory Committee recommends the same services as currently provided, but with improvements in three key areas requested by the public: longer open hours in all branches; more books and other items on the shelves for checkout; more programs to encourage children's use of the library. See Exhibit D for the library's current open hours per week by branch, and recommended open hours if the Library District is approved. The proposed budget includes a reserve fund to maintain library facilities and sustain service levels. See page 25 ofthe Feasibility Report for more information about the library district service plan. It will be up to the new Board of Directors to decide the final plan of service and approve the annual budgets. What would the tax rate be? The Library Advisory Committee recommends a permanent tax rate of $1.18 per $1,000 of Assessed Value. See pages 26-29 ofthe Feasibility Report for complete information about the proposed tax rate. Under Oregon law, the Assessed Value on any individual piece of property can grow no more than 3% per year (unless there is new construction on the property). So Library District property tax growth on any piece of property is limited to no more than 3% a year. Can the libraries be funded by user fees? No. The experienee of public libraries is that user fees cannot take the place of tax support. It is often suggested, for example, that libraries should charge a modest fee, e.g. $10, for a library card. Even if every person who currently has a library card paid a $10 fee annually, the revenue so generated would total only about 10% of the library's annual budget. And ifthere were even just a modest fee, people would share cards to avoid paying, making it more difficult to track and retrieve borrowed items, thus increasing the cost of operating the library. April 5, 2006 Page 3 It would be difficult if not impossible to charge a fee for each ofthe numerous other services that public libraries provide. For example, if there were a fee each time a patron asked a question about how to use the library or where to find information, there would soon be no questions asked. The Jackson County library experimented with charges to businesses to meet their research needs but learned there was no market for a fee-based service ofthis kind. The library does charge fees for many "value added" services, e.g. for photocopying and printing; for a new library card ifthe first card is lost; for interlibrary loan; and for rental of meeting rooms fbr private purposes. However, charging fees for basic services like reading books in the library, checking books out, asking reference questions, and attending storytime programs changes a "public" library, freely a,vailable to everyone, to a "private" membership library available only to those willing or able to pay. It would be a throwback to the early "subscription libraries" ofthe nineteenth century which preceded the development ofthe public library movement. Moreover, the entire community derives benefit from public libraries, including citizens who seldom or never visit in person. Studies show that public libraries have an economic impact that greatly exceeds their cost. In South Carolina, researchers determined that the return on investment for every $1 spent on public libraries was $4.48, or almost 350%. In Florida, a similar study showed an even bigger return: $6.54 for every $1 invested. The return in economic value came from the books and other information resources loaned and used by library patrons; reference services to businesses, students, and the general public; savings in time and money to library users whether for personal, educational, or work-related purposes; increased wages; and generally improved financial well-being ofthe community. [Reports available at <www.oclc.orglnews/publications/newsletters/oclc/2005/267/advocacy.htm> .] Public libraries are a highly valued American institution precisely because they are available to everyone whatever their economic circumstances, educational background, or family situation. Chlldren especially may realize their full potential if they develop a love of learning and reading at an early age, unfettered by considerations of whether their parents can afford to buy them a library card. Like public education, public libraries help fulfill America's promise as the land of opportunity. What is the situation with compression in Jackson County? Under Measure 50 (the tax limitation measure approved by voters in 1997), compression is something that can happen on a property-by-property basis. The Assessor says that there are at least a few individual properties in Jackson County cities that are in compression. A new property tax would increase the compression on those particular properties. However, the taxes being proposed for a Library District would have no or negligible impact on the total tax collections of cities as a whole. What happens if a City Council decides to opt out of the Library District in terms of their citizens receiving library services? Residents of that city would not be entitled to the library services provided by the District. Since they would not pay Library District taxes, it is likely the branch in their city would be closed. April 5, 2006 Page 4 Can the city enter into a separate funding agreement if it opts out of the District? It may be possible for a city to contract with the Library District to provide services to its residents. However, the costs would pr1esumably need to come from the city's limited budget. Moreover, it might not be possible for a city to contract for any different level of service for its residents than the Library District provides to other areas of the c:ounty. Right now, anyone in Jackson County may receive the same quality and level of service from any branch. It would be very difficult ifnot impossible to distinguish among the users of the library and determine that a person who lives in one city is entitled, for example, to use the computers and ask reference questions and check out books, but a person from another city is entitled only to check out books. Can our city take over and run our local branch just for our own residents? It may be possible for a city to enter into an agreement with Jackson County to use the local branch library building. However, the city would need to bear all the costs of library operations. Moreover, city residents would not have the advantages of being part of a countywide library system. For example, they would not have access to all of the 600,000 books and audiovisual items in all 15 branches, nor a computer catalog of the books available. Their children might not have programs like summer reading, preschool storytimes, and storytellers. The library system wouldn't be selecting, ordering, and cataloging new books for the branch. Professional reference and information services may not be provided. Unless the city has trained information technology support staff, the branch would not have computers for Internet access, word processing, and other computer services that patrons want. Is there still a demand for library services given the increasing number of information/entertainment alternatives? Yes. Numbers tell the story. This year library users have borrowed more than 6% more books and audiovisual items from the Jackson County library branches than last year. As new libraries open, they attract new borrowers. For example, 10,248 people registered for new library cards at the Medford library during the 12 month period from 3/1/04 - 2/28/05 compared with only 3,545 new borrowers during the previous 12 months. Moreover, the library is used in many more ways than previously. For example, 240,000 sessions were booked by the public on library computers for Internet access, word processing, and other purposes. Despite the Internet, reference librarians annually answer 175,000 "tough" questions patrons cannot easily find on their own. From June - August 2005, 5,500 children who signed up for the library's summer reading program read nearly 54,000 books. That was an increase of75% over the previous summer. 3,775 public gatherings and activities will be held in the libraries' new meeting rooms this fiscal year, sponsored by community groups large and small. April 5, 2006 Page 5 Even for those who cannot or do not visit in person, the library offers a range of services to be accessed from home or workplace. Audio books can be downloaded by anyone with a library card and Internet computer. The library's electronic reference resources on topics from auto repair to genealogy are available day and night to anyone with a library card and Internet computer. Reference service, including homework help, is offered 24/7 through Oregon's L-net cooperative. The library's catalog can be searched from horne, and holds placed day or night for delivery to the nearest branch. The library also reaches out with monthly deliveries of picture books to more than 60 chilldcare sites; annual book talk programs for 5,200 6t\ 7th, and 8th graders; and deliveries of nearly 30,000 books to elderly and homebound citizens throughout the county. Has the county looked at reducing service levels and if so, what is the effect on the cost of library services? Surveys indicate that library patrons want more service, not less. Library hours were cut iin 2003 with subsequent complaints that our communities' beautiful new libraries aren't open long enough hours. Moreover, patrons say they want more books on the shelves on more subjects, plus new ti)fmats like CDs, quality DVDs not available to rent, downloadable books, and electronic information databases. Patrons also want more activities that encourage children to read. Can the libraries be turned into multi-use buildings in order to bring in more revenue? The library in downtown Medford is already shared with Rogue Community College. This shared, leased arrangement was a part of the building design. The other branches are all quite full and busy and, except for the community meeting rooms, which can be rented for private purposes, they do not have space for other public or private jurisdictions. Has the county explored the use of bookmobiles? Bookmobiles are sometimes used by libraries to provide services to small, remote commu.nities. They cannot provide the full range of services that are provided by permanent branches and they are not particularly cheap to operate. With 15 branches, the Jackson County library is within easy reach of nearly everyone. Can't the libraries be run by volunteers? The Jackson County library currently enjoys the services of the largest group of volunteers of any county agency, 160 volunteers who contribute nearly 16,000 hours annually. They work in partnership with employees to provide the best possible library services to Jackson County residents. But modem library service requires a level of skill and training beyond that which most volunteers can acquire during a typical two hours per week shift. Just as successful businesses cannot be run entirely by volunteers, neither can a successful library. April 5, 2006 Page 6 Instead of asking for a Library District with a permanent tax rate, is there another funding option like a serial levy? Oregon law makes, provision for a "local option" levy for a maximum of five years. Such a levy would not solve the problem of stable library funding. It would perpetuate concerns about libraries closing every few years. Moreover, lit would require library funding measures to be on the ballot frequently. Voters would consider library funding at many ofthe same elections as other money measures, e.g. future requests from cities. Could the library buildings be sold or leased if the measure fails? The library buildings must be used for public purposes until the bonds are paid off. Leasing the buildings to a for profit organization would endanger the tax exempt status of the bonds and is probably not something the county would seriously consider. Would we have to continue paying for the buildings even if there's no library service? Yes. Will the Board of Commissioners still do the district if the larger cities opt out? That is a policy question for the Board to decide, and there hasn't been any discussion of that question. Staff would likely recommend that we not move fOlWard with the creation of a District without the larger cities. What happens to the tax rate and the cost allocation if smaller jurisdictions opt out? Probably the tax ra.te would stay about the same. If some branches close, the total library budget would be smaller, but the cost per citizen would be about the same. If a city votes to not be part of the District, could they join it later? Oregon law permits later annexation into a district. Is May 17 a "drop dead" date for the city resolutions or can they submit as late as the first public hearing on or about June 28? An Oregon attorney who specializes in district law has told us that "[ city] council may pass a resolution later than May 1 7. It would be best if the county Board [of Commissioners] had all resolutions by May 24 because its initiation order needs to describe the district boundaries. The Board could probably add territory to the April 5, 2006 Page 7 district at the first public hearing on June 28 based on a later [city] council resolution. The point of the hearing is to decide whether or not to go forward with the district and what territory to indude....Any change to the boundaries set by the Board on May 24 must be supported by findings in the record." Are there other successful library districts in Oregon? Yes, there are several. The one that is most like the district being proposed for Jackson County is the Deschutes Public Library System. It is a countywide public library with five branches; the largest is in Bend. It has an elected Board of Directors. Would the Board of Directors of the Jackson County Library District be elected at large or by zone? The recommendation is that the five directors be elected at large. This can be changed in the future if it proves desirable, but it would be difficult and time-consuming at this time to divide the county into zones with equal populations. Besides geographic diversity, it is hoped that candidates for the Library District Board will bring such strengths as long-range planning skills, an understanding of public finance and budgets, and a commitment to excellent library service. The county built these new libraries with foreknowledge that the timber payment program was not permanent. Why? Jackson County has had to rely on unstable, unpredictable federal payments since early in the 20th century. Whether those payments were a share oftimber harvest receipts or a payment in lieu of taxes, they have never been reliable. In 2000 there were federal surpluses, making renewal of the timber payments to Oregon counties a reasonable expectation. Even if we had not built new libraries, we would still be faced with the difficult prospect of closing libraries. Our community would be no better off today if we were considering closing old, over-crowded libraries. If the library district is approved, what happens to the money we already voted on for library operations? In September 1996 Jackson County voters approved a property tax serial levy dedicated to library operations. When Measure 50 was approved in May 1997, that library levy, as well as the existing county tax base and all other county levies were rolled into a "permanent tax rate" that was significantly lower than what county taxpayers had been paying. That permanent tax rate hasn't changed. Since Measure 50 doesn't allow assessed valuation to keep pace with population growth or inflation, the purchasing power of the permanent tax rate has steadily declined over time. Besides the local property taxes, the federal government contributes about $22 million to the general fund and road fund each year. If the federal money is not renewed, or is significantly reduced, the limited local property taxes will need to be used for the county's core, mandated, and essential services. April 5, 2006 Page 8 Is the County anticipating any other tax measures in the next few years? A tax measure to fUnd the existing law enforcement district may be on the ballot in November 2008. However, this would be for unincorporated areas of the county only. Cities would not be affected, and city residents would not vote on the measure. What will happen if the timber payments don 't go away? The Board of Commissioners has not discussed nor made a decision about this, but recent predictions are that at best, Congress may re-authorize only half the present timber payments, and for just a few more years. Information prepared by Ronnie Lee Budge, Director, Jackson County Library and the Jackson County Library Advisory Committee 205 S. Central Avenue Medford OR 97501 541-774-8673 BudgeRL(cV,i acksoncountv.org April 2006 EXHIBIT A EXECUTIVE SUMMARY The Issue Jackson County's expenditures are outstripping its revenues. Factors influencing the county's financial condition include population growth and the attendant impact on services, higher energy and gasoline fuel prices, federal mandates for emergency management, and increases in health insurance and retirement costs for personnel. Even with structural changes in the budget, the problem will continue to threaten already reduced service levels in county programs, including the library. County officials caution that library services, which are not mandated, are sure to be profoundly affected by the rising cost of mandated county services. Compounding the county's structural funding deficit is the potential loss of federal timber revenues that are scheduled to be eliminated in fiscal year 2007. Findings Jackson County can no longer sustain the current, modest level of library st:rvice to county residents much less the service levels residents want from their new and renovated facilities. With or without O&C funding, the library needs a new, stable source of funding to sustain library services throughout the county. Creating a library district is the only reasonable alternative funding source for the library. Topping the public's list of library services are better collections, more reader and information services, and more generous hours. The new and renovated libraries are increasing the use of collections and services and the demand for adequate services. People want to get into their libraries to gain access to the collections and information, use the computers, and enjoy their community libraries. A respectable library program of service will increase the number of hours open by at least 40%, increase the book budget by 50%, and boost reader and information services to children, teens, and adults throughout Jackson County. The estimated budget for the proposed library district service plan is $13.35 million in its first year of operation (FY2007-08). To sustain this service plan, the library district tax must be at least $1.18/$1,000 of assessed valuation. At $61.35, Jackson County Library's per capita expenditure for library service under this plan would be both reasonable and competitive in Oregon. Conclusion The library's future depends on a stable, adequate source of funding. A Jacksol1l County Library district is feasible at a minimum rate of $1.18 per thousand dollars of assessed valuation. This minimum rate assumes that the library district board of directors will be working very hard to generate other revenue for the library. Barring unforeseen circumstances, the proposed library district would sustain for at least 20 years the level,of service residents want from their new and renovated libraries. Ruth Metz Associates Jackson County Library District Feasibility Report 4 co ..... .- .c .- -'= >< w ca - 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 ~ ~ ~ CD N CD N 1.0 ('t) 1.0 I'- f'.; ~ ~ I'- CD - ..- ..- 0 N r....: N ('t) a) ('t) 0 '<t N ('t) 1.0 0 N ('t) ~ 0 .s::: u c ca ... m ~ .c t/) u Ul C o II) '; C) Ul C) C1)N CI) ti :>> G) _ Cl ::::l C. Q. ~j E -, o o ca - o ~ - o ?!. .- ..... t/) .- ..... ca ..... en Cl) t/) ::J ~ ca ... .c .- ...J ~ ..... C :J o o c o t/) ~ U ca .., " Ul CI) .., .. Gl ,! ;: Ul Cl '~ ~; 0::: al ca - o ~ - o ?!. -g 11:, 3:g 0<"'1 .. .. c.;, o C1:' m CI Ul ~~ ~ :i ~ -:, ~ u c Cll .. m ('t) o 1.0 N o CD o o CD CD o o ..- '<t o CO I'- Q) ro ~ <{ ('t) N CD ..- 1.0 o '<t I'- ..- CO I'- I'- o N o CD 0> ..- 0> ('t) 0> 0> ('t) "0 C ~ ..c l/) <{ ('t) ('t) ('t) . ..- o ('t) o CO ..- '<t o ('t) o ('t) 0> ('t) N .!Q ro LL 2 ...... :J CD ('t) ('t) ('t) 1.0 o N CD CO o '<t I'- o o CD CD I'- CO N '<t ..... c 00 Cl. ~ "E Q) () o o '<t. CO ..- o I'- Lri N 0> I'- CD o o 1.0 ('t) N 0> 1.0 ('t) "E "0 Cl. ~ ro w ('t) '<t ('t) 1.0 o CD ..- CD CD 0> o CO ..- ('t) '<t I'- N ..- I "0 o " CO I'- '<t. CO o ..- N 1.0 '<t 1.0 N o CO N I'- '<t ('t) o N ~ "S: c o l/) ~ u ro ...., I'- ('t) I'- ~ 0> o I'- r....: '<t CO 0> o I'- 1.0 o I'- ..- '<t CD o I'- I'- 0> N "E .E "0 Q) ~ ..- o '<t CO o ('t) N ..- ('t) I'- N o 0> N ('t) o CD o N "~ c Q) o ..c Cl. o o I'- ..- o '<t o CD '<t '<t o CD o ..- ..- o '<t t> Q) c.. l/) o L- Cl. N '<t N.. ..- ..- o ~ 1.0 ('t) N '<t. CD o ('t) CD '<t CO o 1.0 '<t L- Q) > 0:: Q) :J o 0::: o 1.0 CD ('t) o N ..- 0> N '<t. ..- o o N '<t o ..- '<t ..- ..c u :J 0::: ..- I'- I'- 1.0 o 1.0 N ('t) '<t 0> N o 1.0 N CO o N CO ..- Q) > o () "0 ro ..c CJ) '<t ('t) o 0> o CO N ('t) 1.0 ('t) ('t) o o ..t o CD ('t) CO N ...... c Q) ro I- CD CD '<t. ('t) ..- ~ ..- q ..- ~ ("II o 0> C") '<t I'- CD '<t ~ CD ut O'l ..- ..- o ~ C") I'- CO 0> ('t) N co co o ...; ..- "'" ..... (3 Q) ~ ..c s= ~ Cll - o ~ l/) c o ~ L- ..... o~ 0) Q) L- Q) > :p u ro "~ Q) "0 :J 13 c >, ro E l/) ~ i.L >. ro "0 -- C o 000 l/) Q) l/) Q) "5 c E I o CD Q) C o 3: ..Q ro l/) Q) ..c u c ro L- .0 Q) E o l/) l/) C o i3 "00 c l/) ~ 3l .0 Q) >,..... .0 ~ l/) 0- Q) E .C I roO >('t) ..c 0 rn~ c 3: ~..Q 6ro 000 Q) l/) E Q) 0 (f) l/) u J: (,) c CU ... m ~U) .co C I oil) ._ 0 -0 CUN (,) ... o CU - (1) <(>- - - (1) CU 0)(,) "C tn :::SLL m ~ CU ... .c ...J ....... .- .c .- -'= >< W .... Q) t>> "tl :::I m III .... o I- CO'<;f"I'-I'-O'l'<;f"O(()COO'l(")'<;f"IONI'- 1O(")0'l'<;f"'<;f"(()IOCO(()I'-..-N'<;f"1'-10 O(")(()'<;f"NNCO(()I'-O'lCO(")"-NO'l N <<i a:i '<;f". cD a.O ci N a.O <<i ~ a:i cD cD M OCOIOI'-(()CO(")CON(()COI'-..-(()O'l 10 (")(")..-NNN IO"-NNN (") ... CIO o CIO .n - o CIO~ ER-ER-ER-ER-ER-ER-ER-ER-ER-ER-ER-ER-ER-ER-ER-~ N II) .... II) o U "tl Q) .... III .J:: (/) M CO'<;f"I'-I'-O'l'<;f"N'<;f"COIOIO(()IONI'-CIO 100000'l'<;f"COCO'<;f"(,,)OO'l'<;f""-'<;f"(")(")CIO (()NCOO'lN(")OI'-OI'-CO(,,)..-(()COI'- O'l I'- ..-. ,..: a:i ~ ~ M a.O M cri cri cri a:i <<i .n (,,)1'-"-(,,)O'lI'-..-IO"-N'<;f"I'-O'lIO(")(0 I'- N..- ..-(()..- N ..-..-0) M ER-ER-ER-ER-ER-ER-ER-ER-ER-ER-ER-ER-ER-ER-ER-~ ~II) .... II) o U OOOOOOCONO'<;f"COCOOOOO O'<;f"OO(()COOIO(()CO(()OO'<;f"NN '<;f"OCOIOO'lCOCOO'lI'-"-O'lOO(()..-O N ,..: cD cD ,..: M cri a:i ci ..-. ~ cri ,..: 1'-. cri 0 (()O'<;f"(")(()"-..-N..-'<;f"(,,)O'l..-OIOI() ro ~~~~<D~ M ~..-..-o ~ .... t) Q) .... o ER-ER-ER-ER-ER-ER-ER-ER-ER-ER-ER-ER-ER-ER-ER-~ .J:: t) C III .... m c ~ "a.> .!!!'o C ._.. - m c... '0 - > .. Cll-CLL c...=c-cx 0> C J~ a.> I g 0 'c ~l!!2---c..ll::'+-a.> o..c_COl-u-CO o.Ul::la.>CllOClla.>.J:: <(<(COOUJ(9....,~c... .. L.. a.> a.> > .. > 0 ~ '00:: 0 i:3 a.> a.> >. - II) o.::l.c-cc2- Ul 0> U Cll a.>.- III eO::l.cm.J::c; c...C:::C:::CJ)I-5:1- Ul L.. ::l o .c C a.> a. o m C ~ -C -C Cll L.. .E Ul -C C ::l '+- -C a.> ro C o -C Ul a.> -C ::l 13 C .. a.> U Cll a. Ul ~ ~ ,Q -C ~ Cll .J:: Ul L.. .E a.> U C Cll C a.> C 'ffi E -C C Cll Ul iii ~ a.> .:::;: :E c..+:; a.> ::l Ul L.. Ul.E .c Ul ~oo 32 0 .J:: U u-c -C C C Cll Cll.J:: _ U ::l C -C ~ Cll.o g>ro ::l.J:: 0- >.51 :!:i .~ ::l a.> -Co. Cll ::l m Ul U L.. ..Q 0 -C .~ ~~ . 0 ~ ~ .~ ~ a.>l!! Ul ::l ~ ~ C L.. a.> 0 L...J:: ~ ~ ~O) 0) C > C a.> 0 .. ~ 00 a.> L.. a. i.;:: L.. .E ~ -C o 00 ::l U iii ~ :s L.. o '+- (() ..- N.. (") co ER- '+- o C o +- ::l .0 'C C o U a.> 0> ~ (5 o ~ C ::l E E o o a.> ::l 0> o c::: Ul a.> -C ::l 13 C Ul 5~ U'Q) ~ ~ 0.0 U-c o C - Cll Ul Ul l3 a.> U 'C U Cll Cllm . Ul ~ a.> ::l-c O::l.c .J::13u C C C a.> .- ~ o..J:: .0 o g a.> ro~-E :i.oL.. 0l.J:: .E a.> U Ul L.. Cll l3 a.> ~ ~.Ea.> OUl:O a.U5~ ~8ro ~'Oro .oa.>-c .- .= -C .J::Oc U Cll ~Ul"": .0 E .~ Cll-C .J:: l:>>.2 ~ e ~ UJo.u .. .. L.. o '+--C .. 0> a.> C ~~.~ ~ .Q 'ci. ~ e Iii a: l!! 0 ::l ..ll: 0..0 e 1! E E '0 C> ~ a.> ~ -C ~: 0> ~ I'- ~L.ea.>1O u) a. -E (() 0> a) -C '+- O'l. ..Q (,1c 0(") Cll .~; Cll ~ ER- ro a; ..0 '+- ullIa.>..-o -g '-(t', g <Ii ~ E'2o..~cO ro :.~ E u :g E"::lCll-c - ~fiCll~~~ Cllc:mL..Cll..- ltIuo.J::ER- C ..ci .- LL Ul Ul Cll .1::.2 . a.> .- cc;uc:2n o ltI 2 .Q ~ C +- 0:' ro E Cll uc,-c-a.>L.. Q)......,C::::l-.,.'O = 1I. Cll 0 Ul a.> o ..lli! a.> .= >'.J:: UC'UOUl_ ~c,cma.>L.. Cll ..cl Cll ::l -E .E .0 ci ~ C '+- C - COO I/.Icrno~ a.> .Q:~ 'ffi .= ~ ~ -E ~i E a.> ..- 0 L.- ,.. L..:5 . = .E ~; 2 0 lil Cll en "'t:i :J ....... ...... 1D E >_ a. C ii 0> .~_ = E .Q :c -c -It>01:::x::l Q) "C' U &. UJ ~ .c..c iDe ~2 (5 g ~a.UJ.9 Exhibit D Open Hours by Branch Recommended # Current # Current # Hours OpenlWeek if Recommended # Hours OpenlWeek Days OpenlWeek Library District Days OpenlWeek is Approved Applegate 24* 6 34 6 Ashland 40 6 58 7 Butte Falls 18 2 30 5 Central Point 35 5 46 6 Eagle Point 38 5 52 7 Gold Hill 30 5 36 6 Jacksonville 32* 6 46 6 Medford 46 6 68 7 Phoenix 30 5 45 6 Prospect 18 3 30 5 Rogue River 42* 6 50 6 Ruch 28 5 36 6 Shady Cove 30 5 42 6 Talent 30 5 45 6 White City 36* 6 50 6 *Includes hours added with donated funds. Sample City Resolution Approval of County Order RESOLUTION NO. Resolution Approving Jackson County Order to Initiate Formation of Library District The City Council of the City of Finds: a. The Jackson County Commission intends to form a library district under the authority of ORS 357.221. A library district would have authority to fund improvements to library services for all county residents. b. The Jackson County Commission may initiate the formation of a library district by adopting an order under authority ofORS 198.835. The Commission would like to include all county territory within the boundaries of the library district. c. The territory of the City may only be included within the boundaries of the library district if the City Council adopts a resolution approving the County order initiating the formation of the library district. d. The City Council believes a library district will be able to better meet the needs for public library and informational services of all city residents. The City Council of the City of Resolves: The City of consents to the inclusion of all the territory of the City within the boundaries of the proposed Jackson County Library District, and approves the Jackson County order initiating the formation of that district. Adopted by the City Council of the City of _th day of 2005. , Jackson County, Oregon this Attest: City of City Recorder By Mayor STATE OF OREGON) ) ss County of Jackson ) I certify that the foregoing is a true copy of the original resolution on file in the office of the City Recorder. City Recorder Draft 12-19-05 Thomas Sponsler 0.. <{ <.9w L[) I- L() w <{9 cr:2g :J I- >- U) U) u.... <{W W 2 .....Jt"")COVCOCOtOOOO>'r"""(oN~ <(MMI'--......OONIt>NMOlNOl L-I'--VIXlIt>NIXlIXlVIXlIXlIt>It>Ol r-OlNI'--COVMOOlOlVI'--Nv O""':ci""':oioioioicO"-:cri.ocO..t r-............... ~.....M,...,.tOCOCO,.....,...,.CDC'\,IM,.....,..... .....C"')U')O)NNI.l')lt)Q)O).....1l)t() ....J 0) I'--It> V 1t>I'--lt>lt>vo V It> It> <(Z":~~~""':Il'!~~~'<l:""":~~ :5::::)ONOO ......OOON......OO wO zO wI- O:::>-OOIt>OOOOVOOOOl'-- Zf- ~ 8 >= <(0 ": ...... C! m N 0 0::: :::) c: o :;:::; co :!::: E ::J,.-_ ...... >-ooOOVOIt>OIt>OOIXlO c: > ::;~ci ~ Q) woN ...... E....J .....: c: 0 CD 0 > ....J o _ (? (1)1--';J;~~D'8;-a;OO~Oa;DO ..........0).......... C"')..... D~~~~;:j ~ ~ w 0::: u:: ONNNOONNNOOONN f-l::l::l:: l::l::l:: l::l:: >...........,... ""':~~ .......... 0:::000 000 cici co o o --1 o o o "<'""" -- o "<'""" E.9- o ...... ...... o .~ ..0 :J CJ) en Q) x co I- - ""OlOlOlOlOlOlo)OlOlOlOlmm OLL.NNNNNNNNNNNNN VVVVVVVVVVVVV f-C!C!C!C!C!C!C!C!C!C!C!C!C! 00000000000000 W > I.- >-mOlOlmOlOlO)mo>mo>mo> L-o>mmo>mOlmOlo>mmo>o> '-0000000000000 ZOOOOOOOOOOOOO :::)NNNNNNNNNNNNN o o - OCO.....<D-.::tNV C")C"') N..... V LOr-- W~N~~~~*:g~N~~~ .....JCOONNCDV CD N.....OI.ONCO ~'ON<'"i..-:.....:N<'"i'O<'"iNci..t.....: U 0;- "8; ~ N -~......... ;; N I.l')_LO ~ Q) v ..............N -MN..... - "8~~_~o~_o-f3e.;=-w u6~CO(/)!e.I-~~ffi~wg:J XCL>-~:J-.J?;:'!.~>~>~> 19-.J!:::~<{-.J0 O['(_Ooz ~<{Ol-LL'ICL~C:: OOzo O:::wzw wzoww>-<{C/) >-I-I-Wl-O-.JWLL:JI-O-.J~ I-Z--.JI--.JClOOCl-<{IO WI<{:JO<{IWOIIC/)<{ ,0 uS: I- CD Cl W CL ~ c:: s: C/) <{-, O,,....,,cnl.ONmt--.U')C") 0)(0(0.....,...,. _OlIt>NvO>NNOOlCOvvCO .... M Ol V I'-- It> 0 N V 0> It> M a) ,... C)~~~f'-.:~or-:~~~~~~~ NNMMVIt>It>COCOCOl'--OlN ...... :=::M,....,cnCOI'-Ml.C)MCO",,"C\IMCO E;:~~~g:6;g:2~~d';~~ ::J~f'-.:~M~~~~~r--.:~~~ O.....NLO.....C"')vVVVNMt--.CO I.{) .......... ............................................. :2: '-- ~ t--.O)N co 0) 0')..... oco Ol coo"",," C:O.....M-.:tcoLOv.....m.....U')(J)()) Nco.....mNMNMOCO.....(OO) ~ 0) cD as a>"': N ~ 0>- ai M" 0 N r--coco Dv N.......... co W co,...." 0 .....,..........NCOtO...............,.........NM ll"i ci cD N .....- ~ a:S ,.....- 0) 0- r-: lri ,..: .....W..........l{).....ONOtOtDC')M ","LON C"')Nv.....U').....I.ON ~ . ~ :=::.....VCO......tOO>tOMNvMNCO E.....COO.....M......WlOOCO-.::tNCO NN.....mMC"')l.Ol.t)vNOOCOv ::J M~..q:MmMaj_:,....,R~t.OvRM t!)~~M~~u:;C;~~~~~~ :2: c:ir-:r-i v-r-itO"":""-NcOr-i ...... CO N - W ::J ....J <l: > U') :2: NC:Ov~c:oO'l""""OO'>COOCOO') M'l""""NVCONCOtOO')'l""""C"')(DCO 'l""""~CO"""lOO)lt)N'l""""V("l")~""" ~aSo-r-~rir--:cDuioa5...fNaS NN'l""""O')MMI.OLOvNCX)(Ov ('I") v v ('I")O')('I")CO'l""""I""-. VLOvC"') 0) -q: ~ (DR o~ ~ 'l""""~ V- C"')R ~ 0 ri ('I")R O'l""""('I")-r-r--.lOO('l")LO'l""""N-r-O) OJ"-M VM(OT""",....,NCOM - to N ~ 0;- ~:;:- 'l"""" N - ~_ 0 N ~ _LO ~ a> -.;t 'l""""_N -MN'l"""" _ -g~~_tJ2.0e-;;-~E!.~w U-~<O(/)<Ol-mOlC::~wo...J ><O>-O-.J~z::;~W>->e::! l\lCLI-~-.J-.J-~ 2':1-0 > --.J-~<{-.JOXOC::-uoz ~<{Ul-LL'ICL_O::: u zo O:::WZW wZOWW>-<{C/) >-I-I-WI-O-.JWLL::JI-O-.J~ f-Z'I-.JI--.JClOOCl'I<{IU -W <{:JO<{IWO IC/)<{ L{) u s: I- CD Cl W CL ~ c:: s: (/) <{ -, ~ Q) 0- o a. ""C Q) '" '" Q) '" '" '" ~ Iii .u Q) 0- '" .E '" 0 c ~ > 0'8 Q) ctil1><(OT""" .s >..2~~x ~ -g~OQ5> :O~"'""CQ)..2<{ "'[ij13~~~t::[ij ~::~13>It>E~ ~~<i~LO~::;, >@E<(~xlt>"" ~ ~ E ~ '0 ~ ~.~ II Iii.x ~ ~"'7 II ~ Q)&!.:g"'i5I1""ll) ::> ""I--""E~ Iii II II II .!!l.~::J II >>>>>-.Joo- ~~~~~~n~<3 ai u IE o '" -.... o '" '" Q) '" '" <{ Q) E >- .0 ~ Iii ::> ""C .> :c .!: .:Q x .9 .c u '" Q) c: o ""C Q) E .g Q) 0- E '" '" c: .2 i;j :; u Iii u Iii ::> tS <{ ~ .u .c u '" Q) .... .E '" Q) ::> [ij > rn B c: o ""C Q) '" '" .0 Q) i;j .~ U; Q) c: '" .!!? '" :c I- Property Taxes in Oregon & Measure 5 "Compression" Presented by Oregon Departmel1t of Revenue Finance & Taxation October 10, 2003 ~REGON ~.. DE~ARTMENT ~OF REVENUE Property Taxes in Oregon & Measure 5 "Compression" Presented by Oregon Department of Revenue Finance & Taxation October 10, 2003 ~REGON ~~ O(PARTMENT =---OF REVENUE Types of Taxes in Oregon ..- Permanent rate limit ..- Local option ..- General obligation bond 1 . . Measure 5 Categories Article 11, section 11b: Taxes on property are categorized as: Excluded from Limitation (G. O. Bonds, etc.) Dedicated to Education (K-12 + ESD + Community College) Dedicated to General Government (Total of All Others) . M.ea,sure 5 Limits Excluded from Limitation No limit Education Limited to $5.00 per $1000 of assessed value General Government Limited to $10,00 per $1000 of assessed value 2 . Values RMV = Real Market Value The value used to test for the Measure 5 limit. MA V = Maximum Assessed Value Last year's TA V plus 3%. T A V = Taxable Assessed Value The value used to calculate a property's tax. The lessor ofRMV or MA V. . lVleasure 50 For 1997, MA V = 1995 RMV less 10%. MA V may grow 3% per year. TAV is the lower of RMV, or MAV: 1995-96 96-97 97.98 98-99 99-2000 Real Market Value $ 80,000 $ 88,000 $ 92,000 $ 95,000 $ 100,000 Maximum Assessed Value . 72,000 74,160 76,384 Less 10% ~ ~ + 3% per year 3 . "Compression" M50 tax is calculated using Taxable Assessed Value. M5limit is $5 for schools and $10 for general government per $1000 of Real Market Value. If M50 tax exceeds M5 limit, tax must be compressed to the limit. Example: If the tax rate for non-education districts totals $14/ $1000: Tax calculation: $14 X $76,384 (taxable assessed value) = $1,069.38 Measure 5 Limit: $10/ $1000 X $100,000 (real market value) - $1.000.00 Loss due to compression $ 69.38 . Priority of Taxes in Compression Within Category ("Education" or "General Government") Local Option Taxes are compressed first. If there is more than one Local Option, they are compressed proportionately. Permanent Rate Taxes are compressed only after all Local Option Taxes are zero. 4 Bob's Property Tax Calculation Local Option Tax is Compressed First Values RMV MAV $100,000 $80,000 1\<15 Limit $1011000 RMV = $1,000.00 General Government Rate Tax Extended Tax City - Perm. Rate Library Perm. Rale City - Local Option 8.6430 3.8495 0.1483 $691.44 307.96 11.86 11.26 $691.44 307.96 0.60 / Total Genel'al Government 12.6863 $ 1,0] 1.26 $ 1,000.00 Bob's Property Tax Calculation Two or more Local Options are Compressed Proportionately Values Limit RMV $100,000 $1011000 RMV = S1000.00 AV $80,000 Tax Tax Compression Tax General Government Rate Extended Loss Imposed City - Penn. Rate 8.6430 691.44 691.44 Library - Penn. Rate 3.8495 307.96 307.96 City - Local Option 1.0000 80.00 79.48 .52 Library - Local Option 0.1483 I I .86 11.78 .08 Total General Government 13.6408 1.091.26 91.26 1,000.00 I + 5 The Math: Two Local Option Taxes Compressed Proportionately 1. Subtract total of non-local option taxes from M5 limit. 2. Divide the result by the total oflocal option taxes. 3. Multiply each local option tax by the resulting percentage. City Penn. Rate $691.44 Library Perm. Rate 307.96 Tota] non-L.O. tax $999.40 Step I. $1000 - $999.40 = $0.60 Step 2. $0.60 / $9] .86 = .00653] 7 City Loca] Option Library Local Option Tota] L.O. tax $80.00 ]1.86 $91.86 Step 3. $80.00 x .00653] 7 = 0.52 11.86 x .0065317 = 0.08 t Local Option Tax Imposed t Local Option ~'Gap" - .. Measure 50 taxes on a property are calculated using T A V. Measure 5 limit on the property is calculated using RMV. Any difference is the available Local Option "Gap". Each property has a potential Local Option "Gap". 6 Calculate Bob's Current MSO Tax Rate Current Taxes in General Government Category: M50 Rates County Library District City $8.5000 3.0000 .7000 Total M50 Rate $12.2000 Calculate Bob's Local Option "Gap" Real Market Value $100,000 Taxable Assessed Value $ 80,000 1. Calculate the M5 limit. $10 x ($100,000 RMV/$l,OOO) $1,000 (M5 tax limit) 2. Divide the M5 tax limit by the Taxable Assessed Value to approximate the "Measure 50 limit". Multiply by 1,000 to get a rate per $1,000. $1,000/$80,000 TAV .0125 x 1,000 .0125 $12.5000 (M50 limit) 3. Subtract actual general government category rate - 12.2000 Local Option "gap'. $0.3000 i $1000 7 .- Code Areas "Code Area" - A unique geographic grouping of taxing districts. Code Districts 10-1 County School 10-2 County Library School 10-3 County Library City School . Calculate 4'Gap" for all Code Areas "Gap" by Code Area Spreadsheet Code 1 0-1 lO-2 lO-3 MAV $1.367m $2.875m $3.50Om M5 Limit $13,670 $28,750 $35,000 TAV $L495m $3.005m $3.75Om Current Rate 8.5000 1 1.5000 12.2000 M50 Limit 9.1438 9.5674 9.3333 "GAP" -0.6438 1.9326 2.8667 8 Ask Y.our Assessor . AskF&T Bob Frey (503) 945-8584 robert. c .frey@state.or.us Lee Peterson (503) 945-8338 lee. peterson@state.o1.us Kathy Stevens (503) 945-8289 kathryn.m.stevens@state.or.us F&T Messages (503) 945-8293 Department of Revenue website: WWW.doLstate.oLus 9 JACKSON COUNTY, OREGON LIBRARY DISTRICT FEASIBILITY REPORT March 29, 2006 Prepared by Ruth Metz Associates TABLE OF CONTENTS Page Main Report 2 Contents 3 Acknowledgements 4 Executive Summary 5 Purpose 5 Background 6 Funding Options Study 7 The Jackson County Library Now 15 Jackson County 24 Jackson County Library of the Future 25 Library District Service Plan 26 Library District Budget and Tax Rate 30 Conclusions Exhibits 34 Exhibit A: Twenty-Year Library District Budget 38 Exhibit B: Tax Revenue Table 40 Exhibit C: Library Program Revenues 41 Exhibit D: Library District Budget: Personnel Services 43 Exhibit E: Library District Budget: Materials and Services Figures 8 Figure 1: Governance and Accountability, Jackson County Library 10 Figure 2: Per Capita Operating Expenditures: Peer Comparison 11 Figure 3: Jackson County Libraries: Operating Budget History (Table) 11 Figure 4: Jackson County Library: Operating Budget History (Graph) 12 Figure 5: Percentage of Budget Spent, By Category, FY 2000-2006 12 Figure 6: Library Program Organization 15 Figure 7: Jackson County Population 16 Figure 8: Poverty Rate: Jackson County, Oregon, and U.S. 16 Figure 9: Poverty Rate for Children under 18, Jackson County, Oregon, U.S. 17 Figure 10: Median Household Income, Jackson County, Oregon, U.S. 18 Figure 11: Per capita Personal Income, Jackson County, Oregon, U.S. 19 Figure 12: Change in Population, Jackson County, Oregon, U.S. 19 Figure 13: Total Population, Jackson County, 1970-2000 20 Figure 14: Total Population, Jackson County, 2000-2005 21 Figure 15: Hispanic Population, Jackson County, 1969-2004 22 Figure 16: Total Number of Jobs, Jackson County, 1969-2003 26 Figure 17: Jackson County Library: Estimated Budget, FY2007/08-FY2009/10 32 Figure 18: Per capita Expenditure Comparison Ruth Metz Associates Jackson County Library District Feasibility Report 2 ACKNOWLEDGMENTS This feasibility study and report was commissioned by the Jackson County Library Advisory Committee. It was funded with a grant from the Meyer Memorial Trust and contributions from the Jackson County Library Foundation, Friends of the Library, and Jackson County. Ronnie Lee Budge, Jackson County Library Director, originated the grant proposal that led to its funding. The following individuals and groups contributed their time, expertise, and valuablle input to this study. Library Advisory Committee: Patricia AsWey Kathleen Davis Jim Fety Larry Gonzales Sharon Kodak Craig E. Morris Scott B. Rayburn, Chair Ronnie Lee Budge, Jackson County Library Director Jackson County Library Management Team Susan E. Slack, County Administrator Dave Kanner, Deputy County Administrator Harvey Bragg, Fiscal Planning Director Dan Ross, County Assessor The consultant acknowledges the valuable assistance of associate Thomas Sponsler, Of Counsel to Beery, Elsner, and Hammond, LLP, Portland, Oregon. Ruth Metz Associates Jackson County Library District Feasibility Report 3 EXECUTIVE SUMMARY The Issue Jackson County's expenditures are outstripping its revenues. Factors influencing the county's financial condition include population growth and the attendant impact on services, higher energy and gasoline fuel prices, federal mandates for emelrgency management, and increases in health insurance and retirement costs for personnel. Even with structural changes in the budget, the problem will continue to threaten already reduced service levels in county programs, including the library. County officials caution that library services, which are not mandated, are sure to be profoundly affected by the rising cost of mandated county services. Compounding the county's structural fil.mding deficit is the potential loss of federal timber revenues that are scheduled to be eliminated in fiscal year 2007. Findings Jackson County can no longer sustain the current, modest level of library service to county residents much less the service levels residents want from their new and renovated facilities. With or without O&C funding, the library needs a new, stable source of funding to sustain library services throughout the county. Creating a library dis:trict is the only reasonable alternative funding source for the library. Topping the public's list of library services are better collections, more reader and information services, and more generous hours. The new and renovated libraries are increasing the use of collections and services and the demand for adequate services. People want to get into their libraries to gain access to the collections and information, use the computers, and enjoy their community libraries. A respectable library program of service will increase the number of hours open by at least 40%, increase the book budget by 50%, and boost reader and information services to children, teens, and adults throughout Jackson County. The estimated budget for the proposed library district service plan is $13.35 million in its first year of operation (FY2007 -08). To sustain this service plan, the library district tax must be at least $1.18/$1,000 of assessed valuation. At $61.35, Jackson County Library's per capita expenditme for library service under this plan would be both reasonable and competitive in Oregon. Conclusion The library's future depends on a stable, adequate source of funding. A Jackson County Library district is feasible at a minimum rate of $1.18 per thousand dollars of assessed valuation. This minimum rate assumes that the library district board of directors will be working very hard to generate other revenue for the library. Barring unforeseen circumstances, the proposed library district would sustain for at least 20 years the level of service residents want from their new and renovated libraries. Ruth Metz Associates Jackson County Library District Feasibility Report 4 INTRODUCTION Purpose The purpose of this report is to document the feasibility of establishing a Jackson County Library district. This analysis is based on a definition of the services to be provided. This report includes a library district plan of service and budget as the basis for estimating a tax rate for the proposed library district. Background Over a year ago, Jackson County Library administration with the Library Adlvisory Committee began a study to address the future needs of the Jackson County Library system. The primary motivation was the problematic funding forecast for the library. The funding problem is multi-faceted. First, Jackson County operating expenses, which include the operation of the library, are outstripping revenues. Higher energy costs, federal emergency mandates, and rising health and retirement costs for personnel have all contributed to the increased I:;OSt of doing business. Property values are rising but state laws cap property tax revenues. In addition, population growth is putting pressure on local government for basic slervices such as roads, public safety, and public health. County service levels, including those in the library, have been reduced as a cost-12Utting measure. County officials say that even with structural changes in the budget to help correct the revenue-expenditure gap, the problem will continue to pose a major threat to already reduced service levels in county programs. County officials caution that library services, which are not mandated, are sure to be profoundly affected by the rising cost of mandated county services. Compounding the county's structural funding deficit is the potential loss of federal revenue if O&C funds are eliminated as scheduled in fiscal year 20071. The O&C funds are compensation for federal use of county lands. The effect on the county's general fund will be the loss of about $16.9 million.2 The enabling legislation, PLI06-393, is set to expire September 30, 2006 which corresponds with the county fiscal year that ends June 30, 2007. However, the possible loss of O&C funds is only part of the problem. The basic funding problem for the library is this: Jackson County revenues cannot sustain the level of library service county residents want in the long-term. In the event that O&C funding is reauthorized, most believe it will be short-lived. With or without O&C funding, the 1 Jackson County is one of 18 Oregon counties that have received annual recompense from the federal government. The purpose was to compensate counties for the loss of revenues the counties might have gained if they had control of these lands. O&C funding for these counties began in 1916 when the federal government used their lands to help the Oregon and California Railroad (O&q. The O&C revenues were later replaced by funding under Public Law 106-393. 2 From draft report memorandum, "Planning for Potential Loss of Federal Funds", Susan E. Slack, Jackson County Administrator, October 13, 2005. Ruth Metz Associates Jackson County Library District Feasibility Report 5 county cannot keep the library at current service levels, much less at service levels residents want from their newly renovated library system. Funding Options Study In October 2004, the library administration initiated a funding options study on the advice of county administration and the Library Advisory Committee. The study elements were funded by the county, Meyer Memorial Trust, the Library Foundation, and Friends of the Library. The goal of the funding options study was to find adequate, stable, and sustainable funding for the Jackson County Library. The study included interviews of Jackson County and city officials, focus groups, Friends meetings, and community meetings. It included library budget analyses and peer library benchmarking, a library user survey, and a citizen poll. Throughout the process were several work sessions involving county and library management, Library Advisory Committee, and Library Foundation. County Commissioners all expressed concern for the future funding of the library. While all counseled that other funding options should be explored, two of three said that a district was in the long-term best interests of the library.3 Suggested options included asking cities to help fund library operations, generating more revenue from the library program, and privatizing the operation of the library. All of these options were considered but none can achieve the goal of the study: finding adequate, stable, and sustainable funding for the Jackson County Library system. Among other findings, the study data showed that the public wants more service than the library is able to provide at current funding levels. Library use is at an all-time high despite budget-driven cuts in hours of service. Focus groups, public meetings" and a library survey conducted from April-September 2005 established that the public wants more access to the improved library facilities, with more hours of operation, and more collections and services than at present. A telephone poll of citizens confirmed these findings. The year-long study of funding options led to the conclusion that a library district with taxing authority is the most feasible funding alternative for the library. City officials said that partnering with the county to fund their community library operations was not a reasonable option because cities do not have the money. There was no widespread interest among cities in taking over the operation of the library. City officials generally were averse to dismantling the Jackson County Library system to create municipal libraries.4 Most city officials recommended that the district be the first option explored. Most reasoned that a library district would provide a dedicated source of funding while 3 Ruth Metz Associates, Summary of Interview with County Commissioners in Jackson, Douglas, and Josephine Counties, February 20, 2005 4 Ruth Metz Associates, "Funding Options Study: Report of City Interviews," July 11, 2005. Ruth Metz Associates Jackson County Library District Feasibility Report 6 relieving the financial burden on the county. 5 Though city and county officials salY they want the library to be as efficient and resourceful as possible, most realize that to expect the library to be fully self-supporting, privatized, or largely fee-based is unrealistic. The funding options study included consideration of two types of districts: a library district (ORS 357.216-357.286) and a county service district (ORS 451). The essential difference between the two types of districts is in governance. The "357" library district has an elected, 5-member governing board, independent of the county. The "451" county service district would have the Board of County Commissioners as its governing board. For the purposes of budgeting, this feasibility report assumes Jackson County Library district will be the 357 variety. THE JACKSON COUNTY LIBRARY NOW The Jackson County Library system is comprised of 15 community libraries, including the Central Library in Medford. Elsewhere, libraries are located in Applegate, Ashland, Butte Falls, Central Point, Eagle Point, Gold Hill, Jacksonville, Phoenix, Prospect, Rogue River, Ruch, Shady Cove, Talent, and White City. The Jackson County Library system has undergone extensive physical renovation since 2000 when voters approved a $38.9 million bond measure. Since then new libraries have been built in Applegate, Central Point, Eagle Point, Gold Hill, Medford, Prospect, Ruch, and Jacksonville. Urban renewal funds built a new library in White City. The existing libraries in Rogue River and Ashland have been extensively remodeled and expanded. Construction will soon begin in Phoenix, Shady Cove, and Talent and facility plarming is underway in Butte Falls. The Central Library is a two-story 83,000 square foot building that has three primary functions. It is the community library for 90,000 people who live in and near Medford. It is administrative headquarters for all 15 branches of the library system. It is the library for more than 7,000 Rogue Community College students. Shared space on the second floor is used by both the college and the general public. Rogue Community College shares the cost of operation and maintenance. The Central Library houses the back-of-house operations for the whole system. These back-af-house operations include administrative, technical, delivery, and outreach services. The Central Library houses a coffee bar concession and Friend's Book Shop. It is a central meeting and staging facility for library programs that serve the whole county . 5 Ruth Metz Associates, "Funding Options Study: Report of City Interviews," July 11, 2005. Ruth Metz Associates Jackson County Library District Feasibility Report 7 Governance and Accountability The Jackson County Library is a department of Jackson County government. The Board of County Commissioners (BOC) is the governing authority for the library. The BOC appoints a Library Advisory Committee (LAC). The purpose of the LAC is to advise the BOC on all matters concerning the library. Figure # 1: Governance and Accountability, Jackson County Library [ Library Advisory Committee J........... Friends of the Library (15 organizations) ...{ Library Foundation Community libraries and shared support services Library Volunteers J J [ Cities . . }...l There are several groups and many individuals who are voluntarily involved in supporting and promoting the Jackson County Library. These include the Friends of the Library organizations, the Library Foundation, and individuals who volunteer to work in the library. Each community library has a Friends of the Library organization. These are all- volunteer organizations that promote the library and raise funds for help pay for special programs and services the library could not otherwise afford. Often, the Friends' fundraising takes the form of book sales. The proceeds help pay for author visits, book discussions, story teller programs, longer open hours, and the annual summer reading program. There is also a Library Foundation for the Jackson County Library. A tax-exempt, non- profit organization, The Jackson County Library Foundation (Library Foundation) receives funds from individuals, businesses, and foundations to II enhance the (:apacity Ruth Metz Associates Jackson County Library District Feasibility Report 8 and services of the 15 branch libraries beyond simply 'bricks and books'." These contributions provide the support to sustain capital improvements, technology, art" and a valuable collection of books and materials. The library director, management team, and library staff maintain these relationships which enable the library to be responsive and accountable to the public. In turn, the library has a strong network of advocates throughout the county. The library has an expansive volunteer program. In addition to the network of Priends organizations and Library Foundation, the Jackson County Library recruits, trains, and assigns a corps of volunteers who work in the libraries. The volunteer complement has increased by 60% in four years. An estimated 160 library volunteers will contribute 14,000 hours in FY2005-20066. Volunteers perform a wide range of services. A few examples are mending and shelving books, delivering books to the homebound, and assisting with story times and summer reading. Library administration also partners with other organizations involved in like-minded programming? Funding Funding for the Jackson County Library comes from Jackson County's general fund and from program revenues generated by the library. The library generates about half-a- million dollars in program revenues. Program revenues include fines, fees, sales, grants, and gifts and donations. The library's capacity to generate revenue has nearly doubled with the improvement of the facilities and the increased use of the library. Within guidelines provided by county administration, library administration prepares an annual proposed budget and submits this to the County Administrator. The County Board of Commissioners approves the budget for the county. The county's fiscal year is July 1 through June 30. The current year budget is the FY2005-06. The county is in the process of preparing its FY2006-07 budget. With a service population of 194,5158, Jackson County Library is the 2nd largest public library in Oregon. The current year (FY2005-06) operating budget for the library is $7,974,525. The FY2006-07 budget is estimated at $8,517,109. Personnel costs make up 64.2% of the current year budget, while materials/ services account for about 28.2%. The book budget accounts for 7.6%. 6 from the 2005-2006 annual Jackson County budget, p. 311 7 Examples are: the Story-telling Guild, Oregon Shakespeare Festival sJuly 1, 2005 Certified Estimate, Jackson County, Portland State University, Population Research Center Ruth Metz Associates Jackson County Library District Feasibility Report 9 Per Capita Expenditures The library's budgeted per capita expenditure for the current year is $42.21. Figure #2 below compares, historically, Jackson County Library expenditures per capita with those of its 3 peer Oregon libraries: Corvallis-Benton County Library, Deschutes County Public Library, and Multnomah County Library.9 By comparison, Jackson County Library's per capita expenditures have remained consistently below the state average and below that of its Oregon peer libraries. Figure 2: Per Capita Operating Expenditures: Peer Comparison $80.00 $70.00 $60.00 $50.00 $40.00 $30.00 $20.00 $10.00 $- ,,~'\. ~"v r'I ~"':i ~" ~~ ~v ~ _\~ _\~ ~~ ~" ~" ~ 0 !o r:f'\j l)?r::s f{? J~\::J ~'\j ~r::s ~" ~~ ~~ -+- Corvallis-Benton Co ___ Deschutes Co PL Jackson County ----*-- Multnomah Co ~ State Average Figure 2 note: per capita expenditures for FY 2000-01 through FY 2004-05 are from the annual Publlc Library Statistics, Oregon State Libran;. Per capita expenditures for FY 2005-06 are from the annual budgets for each library. The state average for FY 2005-06 is not yet available. Jackson County Library Funding History The Jackson County Library's operating budget has gradually increased over the last six years. The cumulative budget increase is 48.6%, FY 2000-01 through the estimated FY 2006-07. On average, the increase has been 8.1% annually. The number of full-time equated staff has declined from 96.10 to 87.96. Below, Figure 3 shows the expenditures by category: personnel, materials/services, books, and capital outlay. It also shows the full-time equated staffing, the per capita cost of operations, the annual percent of increase, and the book budget as a percentage of the operating budget. 9 These particular libraries are the most comparable in the state to Jackson County Library because they are multi-branch, county libraries with central library operation. Like Jackson County, their service populations are among those counties in Oregon that are growing faster than the average for the state. Ruth Metz Associates Jackson County Library District Feasibility Report 10 Figure 3 Jackson County Library: Operating Budget HistorylO ! I 2000 2001 2002 2003 2004 2005 2006 Personnel $ 3,859,111 $ 3,783,630 $4,362,.0l5 i $4,623,682 $ 4,805,372 $ 5,145,,737 $ 5,333,596 Materials/ services $ 1,427,655 $1,822,718 $1,828,622 $1,712,966 $ 2,029,050 $ 2,258,291 $ 2,542,551 Books, etc. $ 409,770 $ 527,803 $ 616,896 I $ 571,598 $ 652,.705 $ 611,,778 $ 620,387 Total Expense $ 5,696,536 $ 6,134,151 $6,807,533 $6,908,246 $ 7,487,127 $ 8,0l5..806 $ 8,4%,534 Capital Outlay $ 35,163 $ $ - ! $ $ 13,180 $ $ 20,575 FIE %.10 95.89 %.73 87.18 87.50 87.96 87.% Per capita cost $ 31.27 $ 33.21 $ 36.29! $ 36.53 $ 39.16 $ 4121 $ 41.40 Overall % increase 7.7% 11.0% 1.5% 8.4% :1.1% 6.0% Book budget as % 72% 8.6% 9.1~ 8.3% 8.7% :7.6% 7.3% Note: Building construction is accounted for in a separate budget and is not included in the "operating budget" throughout this report. Figure #4 illustrates the trend in total operating expenditures and the relative share of the budget going to personnel, materials/services, and the library collection. Capital outlay does not show up in this figure because of the relatively small allocations. n Figure 4: Jackson County Library Operating Budget History $2,000,000 o Books, etc. o Capital Outlay . Materials/services . Personnel $10,000,000 $8,000,000 $6,000,000 $4,000,000 $- 2000 2001 2002 2003 2004 2005 2006 The book budget includes newspaper and periodical subscriptions, audiovisual materials, electronic databases, and various other formats of material that make up the library's collection. Historically, the book budget has accounted for 7-9% of the annual operation budget. 102000-2005 figures are from the Jackson County Budget, FY 2005-06; 2006 figures are from the Library's estimated budget for FY 2006/07 provided by library administration, March 2006. 11 Total capital outlay (equipment), FY 2000-01 through FY 2006-07 $68,918. Ruth Metz Associates Jackson County Library District Feasibility Report 11 Figure #5 shows the percent spent by category: personnel, materials/services, and books. Spending by category has been relatively stable. Personnel costs have gone up an average of 6.37% annually while materials/services costs have increased an average of 13.02% per year. FIGURE 5: Percentage of the Budget Spen~, by Category 2000-01 2001-02 2002-03 2003-04 2004-05 2005-06 2006-07 Personnel 67.3% 61.7% 64.1% 66.9% 64.1% 64.2% 62.6% Materials/services 24.9% 29.7% 26.9% :24.8% 27.1% 28.2% 29.9% Books, etc. 7.1% 8.6% 9.1% 8.3% 8.7% 7.6% '7.3% Operations The Director of the Jackson County Library is a county department head and reports to the county administrator. The library is organized (see Figure 6) under four main programs or divisions: administration, adult and young adult services, children's services, and technical services. A senior librarian manages each of these programs for the library system. The FTE staffing numbers in Figure 6 are from the FY 2005-06 budget. Figure 6 Library Program Organization General AdministrttiOn 7.08 FI'E I I ! Mail Services Law Library ~ 2.53 I 1 Adult and ! Young Adult Children's Servifes Technical Services Services I 47.62 FI'E 17.78 FI'E I 12.95 FI'E Ruth Metz Associates Jackson County Library District Feasibility Report 12 Administration includes employee recruitment and development, volunteer recruitment and development, public communications, facility development and maintenance, and budgeting and fund development. Adult and Young Adult Services includes reference service, reading and literacy promotion, circulation services, and outreach to the homebound. Children's Services emphasizes preparing children for success in school, promoting reading and literacy for children and families, and providing reference services to children, teachers, parents, and other adult caregivers. Technical Services includes development of the library's collection, acquisition and maintenance of the collection, and library information technology. The daily operation of each branch is under the supervision of a branch leader, The community libraries provide hours of service, access to collections, first-level reference service, and local adult, young adult, and children's services and programs. These local operations are supported by central services including purchasing, cataloging, and processing of the collection, ground courier and mail services, information technology, 2ncLlevel reference service, the library's webpage, computer maintenance and technical assistance, and program planning for adults, young adults, and children. The county provides centralized services for the library system. Services provided include administration, auditing, accounting, human resources, information technology, insurance, legal, mail service, and treasury. The county charges the library budget for these services. The FY 2005-06 budgeted costs of county services total $ 385,060. The FY2006-07 estimated charge for these services is $ 417,526. The associated costs are shown by line item under" corporate costs" in Exhibit E of this report: Library District Budget: Materials and Services. Jackson County Library is part of the Southern Oregon Library Information System (SOLIS) consortium. This consortium shares an automated library system which cmables the public to find and borrow materials from the member collections. A delivery system moves the materials amongst the library locations. SOLIS includes Josephine County Library System and Rogue Community College libraries. The SOLIS consortium has a Board which oversees its operations. The member libraries pay for administration and maintenance of the automated library system and for the delivery. The library budget includes the Jackson County Library share of these costs. Services The mission of the Jackson County Library is "to preserve intellectual freedom and strengthen the communities it serves by providing open and affordable access to ideas and information." To achieve its mission, the library focuses its resources: . to be the open door to learning and reading for preschool children; . to give excellent reference assistance to individuals and organizations seeking information; . to provide popular materials for reading, listening and viewing for all ages; . to support children, teens, and adults as they pursue their formal educations. Ruth Metz Associates Jackson County Library District Feasibility Report 13 The library provides a range of materials, programs, and services that further these goals. This includes a collection of over half-a-mi1lion books, magazines, newspapers, audiotapes, videotapes, and music CDs for all ages. It offers in-library and online services suited to all age groups as well as specialized resources and services for children and teens, parents, teachers, and homeschoolers. It also provides outreach services to schools and day-care centers for the benefit of children, parents, caregivers, and teachers. It provides library delivery and readers advisory for individuals in the community who are homebound. The Jackson County libraries are open a combined total of 477 hours per week. Hours vary by location, from 18 to 46 per week. According to the most current reported state data,12 the Jackson County libraries are open, on average, 31.5 per week compared to its peers: 36.4 (Corvallis-Benton), 43.4 (Deschutes), and 55.5 (Multnomah). Jackson County's Central Library in Medford is open 46 hours per week. Its central library is open the fewest hours compared to its peer libraries which range from 57 to 64 hours per week. Staffing of the Jackson County Library is lean. This explains why Jackson County libraries are open the fewest hours per week. It has 89.5 full time equated staff operating 15 facilities throughout the County. To put it another way, at .45 staff per thousand residents, Jackson County Library has 74% of the staffing that Corvallis-Benton, Deschutes, and Multnomah have on average. Jackson County Library's ratio of certified librarians to staff is also the leanest at 1 librarian per 2,234 residents.13 In the course of this study, the consultant compared Jackson County service levels and operating costs with those of peer libraries in Oregon and Washington. The analysis showed that "Jackson County Library is efficient and even exemplary in its ability to spread its services across the county with lower than average funding. Its facilities are exceptional and have positioned the county well to serve the growing population for the next twenty years. However, residents of the county will benefit far more from the library when it is open more hours, offers high demand collections in sufficient quantity, and boosts services such as those the management team has specified in its proposed plan of service."14 12 FY 2004-2005 Oregon Public Library Statistics, Dee. 30, 2005 13 Funding Options Study: Benchmark Comparison and Library District Tax Rate, Ruth Metz Associates, September 28, 2005,p.3 14 Ibid. p. 6 Ruth Metz Associates Jackson County Library District Feasibility Report 14 JACKSON COUNTY This library service plan takes into account the specific needs of Jackson County. The following section includes a brief description of Jackson County, selected demographic data, and a summary of county demographic trends that are significant for the Jackson County Library of the Future. General Description Jackson County is located in the Rogue River Valley of southern Oregon, surrounded by the majestic Cascade and Siskiyou Mountain ranges. It is centrally-located along Interstate 5 between Portland and San Francisco and is within a few hours drive of the Pacific Ocean coastline. It is the 14th largest Oregon county in landmass with a total area of 2,785 square miles.15 Adjacent counties are Josephine (west), Klamath (east) and Douglas (north). Jackson County's southern boundary borders Siskiyou County in northern California. Jackson County is the sixth most populous Oregon county, with 194,515 resid.ents.16 Within Jackson County's boundaries are the incorporated cities of Ashland, Butte Falls, Central Point, Eagle Point, Gold Hill, Jacksonville, Medford, Phoenix, Rogue River, Shady Cove, and Talent. Other unincorporated communities include Applegate, Prospect, Ruch, Trail, and White City.17 Figure 7 shows the certified 2005 population estimates for Jackson County, the incorporated cities, and the unincorporated area of the County . Figure 7: Jackson County Population18 Jackson County Ashland Butte Falls Central Point Eagle Point Gold Hill Jacksonville Medford Phoenix Rogue River Shady Cove Talent Unincorporated Number 194,515 20,880 445 15,640 7,585 1,080 2,490 70,855 4,660 1,995 2,645 6,255 59,985 15 State and County Quick Facts from the u. s. Census Bureau, http:/ 1 quickfacts.census.gov 1 qfdl statesl 411 41029.html 16 July 1, 2005 Certified Population Estimates, Oregon Counties and Cities, Population Research Center, Portland State University 17 National Association of Counties, based on U.S. Postal Service mail delivery Ruth Metz Associates Jackson County Library District Feasibility Report 15 Medford is the county seat, the 7fu largest city in Oregon, and a Metropolitan Statistical Area.19 The city is home to about 36 % of the county's population. Medford's population has grown by 47.2% since 1990. The county has many fast-growing communities. From 1990 to 2004 these communities have grown considerably: Eagle Point (+131 %), Central Point (+99%), Shady Cove (+91%), Butte Falls (+74.6%), Talent (+80%), and Phoenix (+41.1 % ).20 Personal Economics Family and personal economic indicators suggest that Jackson County is depressed in comparison to the state and U.S. Poverty rates are higher while household and per capita incomes are lower. The poverty rate for all ages in Jackson County is higher than in Oregon and the U.S. Figure 8 shows since 1979 Jackson County has outpaced state and national poverty rates by 1-2%. Figure 8: Poverty rate: Jackson County, Oregon, and U.5.21 Poverty rate Jackson COWlty, Oregon and U.S., 1979 - 2003 15 . Jackson County 6 . Oregon 12 c Q) 1: Q) Q. 9 3 ~ United States o 1979 1989 1999 2000 Year 2001 2002 2003 The poverty rate in Jackson County is even higher for those 18 years and younger and it is rising. Figure 14 below shows poverty among children has grown from 14% in 1979 to 20% in 2003. 18 July 1, 2005 Certified Population Estimates, Oregon Counties and Cities, Population Research Center, Portland State University 19 The general concept of a metropolitan statistical area is that of a core area containing a substantial population nucleus, together with adjacent communities having a high degree of social and economic integration with that core. The federal Office of Management and Budget defines metropolitan statistical areas for purposes of collecting, tabulating, and publishing federal data. 20 Workforce Analysis, Population in Region 8, Jackson and Josephine Counties, Oregon Employment Department, Fall 2004, p. 1. 21 Northwest Area Foundation, Source: 1979: U.s. Bureau of the Census, Census of Population and Housing, USA Counties 1998, (http://tier2.census.goy / usac / index. html) 1989 and 1999: U.S. Bureau of the Census, Census of Population and Housing, American Factfinder, (http://factfinder.census.goy/)2000-2003:U.S.Bureau of the Census, Small Area Income and Poverty Estimates, (http://www.census.p:oy /hhes/www /saipe/county.html) Ruth Metz Associates Jackson County Library District Feasibility Report 16 Figure 9: Poverhj rate for children under age 18, Jackson Counhj, Oregon, and U.S.22 c Cll ~ Cll CL. Poverty rate for children under age 18 Jackson County, Oregon and U.S., 1979 - 2003 24 20 16 12 8 4 o 1979 1989 1999 2000 Year 2001 2002 2003 . Jackson County . Oregon kl United states Median household income in Jackson County was $38,924 in 2003, $42,744 in 1999, and $39,485 in 1989, adjusted for inflation. In 2003, Jackson County ranked 15th (from highest to lowest) of Oregon's 36 counties. Figure 10: Median household income, Jackson County, Oregon, and U.S. 23 Median household income (adjusted for inflation, see notes) Jackson County, Oregon and U.S., 1979 - 2003 60,000 50,000 '" .!i 40,000 o o 30,000 20,000 10,000 o 1979 1989 2003 1999 2000 2001 2002 Year . Jackson Count;, . Oregon United states 22 Northwest Area Foundation, Source: 1979: U.S. Bureau of the Census, Census of Population and Housing, USA Counties 1998, (http://tier2.census.gov 1 usacl indexhlml): 1989 and 1999: U.s. Bureau of the Census, Census of Population and Housing, American Factfinder, (hllp: 1 1 faclfinl!eLcensus.gov I) 2000-2003: U.S. Bureau of the Census, Small Area Income and Poverty Estimates, (hllp:! Iwww.census.gov/hhes/www/saipe/countv.hlml) 24 Northwest Area Foundation, Source: 1979: U.S. Bureau of the Census, Census of Population and Housing, USA Counties 1998, (http://censlals.census.gov 1 cgi-binl usac 1 usase'Jill1989 and 1999: U.s. Bureau of the Census, Census of Population and Housing, American Factfinder, (hIIP:! 1 faclfindeLcensus.gov I) 2000-2003: U.S. Bureau of the Census, Small Area Income and Poverty Estimates, (hllp:1 Iwww.census.gov/hhes/www/saipe/county.hlm!) Note: Dollar values are adjusted by the CPI-U, which is the most commonly used CPI. Using the CPI to put dollar values in "real" terms makes it easier to see "inflation-free" change over time. All dollar values are in terms of 2005 dollars. Ruth Metz Associates Jackson County Library District Feasibility Report 17 Jackson County's per capita income, adjusted for inflation was $28,253 in 2003, compared to $30,500 in Oregon and $33,406 in the U.s. Per capita income in the county has grown by 68.8% since 1969. In 2003, the county ranked 7th from highest to lowest out of Oregon's 36 counties. Figure 11: Per capita personal income, Jackson County, Oregon, and U.S.24 en .!i (5 Cl Per capita personal income (adjusted for inflation, see notes) Jackson C01mty, Oregon, and U.S., 1969-2003 36,000 32,000 28,000 24,000 20,000 . 16,000 ' 12,000 8,000 4,000. o .... Jackson Count)lr ,,- ...;;...---- ... Oregon ~,>"~',--=~~ '<r- United states -1 1 r I I ! ! I I I 1 1971 19741977 1980 1983 19861989 1992 1995 1998 2001 Years Significant Trends Four demographic trends are influencing change in the county. They are population growth, industry diversification, occupational growth, and workforce aging, This section ends with suggested implications for the Jackson County Library of the future. Population Grawth Jackson County population is one of a few counties in Oregon that is growing at a faster rate than Oregon. Since 1990, 90% of Jackson County's population growth was due to net migration; that is, more people moving in than out. Ten percent was due to natural increase: more births than deaths. Figure 12 below illustrates the relative change in Jackson County's population compared to Oregon and the United States. 25 Northwest Area Foundation, Source: 1969-2003: Bureau of Economic Analysis, Regional Economic Data, Local Area Personal Income, Table CAI-3, (http://www.bea.gov /bea/regional/reis/) Ruth Metz Associates Jackson County Library District Feasibility Report 18 Figure 12: Change in population: Jackson County, Oregon, and U.S., 1970-200()25 c Q) (J Iii Cl.. Change in population Jackson County, Oregon, and U.S., 1970-2000 45 40 35 30 25 20 15 10 5 . Jackson County 40 . Oregon '" United states 1970 - 1980 1980 -1990 Years 1990 - 2000 As Figure 13 illustrates, the county's population has grown continuously since 19'i'0. The county's population grew by 10.9% between 1980 and 1990 and by 23.4% between 1990 and 2000. As impressive as this rate of growth is, it is less dramatic than the decade of the seventies when the population growth (1970-1980) was 40%. Figure 13: Total population: Jackson County, 1970-200()26 Total population Jackson County, Oregon, 1970-2000 .... Total Population 198,000 176,000 Q) 154,000 is. 0 Q) Cl.. 132,000 110,000 88,000 1 ~~ .,69 -~~~ 1 32J-9E-------- -",/ 94....'3". 1970 1980 Year 1990 2000 25 From Northwest Area Foundation, Indicators for Jackson County, Oregon Cb!!:12:ilwww.indicators.nwaf.org) Source: 1970 & 1980: U.S. Bureau of the Census, County Population Census Counts, (http://www.census.gov / population/ www/censusdata/ cencounts.hhnl) 1990 & 2000: U.S. Bureau of the Census, American Factfinder, (http:/ / factfindeLcensus.gov /) 26 Northwest Area Foundation, Indictors for Jackson County, Oregon. Source: 1970 & 1980: U.S. Bureau of the O:nsus, County Population Census Counts, (huF/ / www.census.goy/population/"'''''''/ censusdata/ cencounts.html) 1990 & 2000: U.S. Bureau of the Census, American Factfinder, f.h!tp:/ / factfinder.census.goy /) Ruth Metz Associates Jackson County Library District Feasibility Report 19 The population growth in Jackson County is slowing but still is outpacinr most of Oregon. From 2000 to 2005, Jackson County's population increased by 7.5%.1 Figure 14: Total population, Jackson County, 2000-200528 T ota! population Jackson COWlty, Oregon, 2000-2005 196,000 I .. ~._~~jt&.___195~22 192,000 - 190JOO-.--- ... Total Population Q) is. o Q) 0.. 188,000 184,000 18-7~:26- ~_~~.D;z- 181.too-- 180,000 2000 r 2001 .-- "' 2002 Year I . 2003 2004 2005 Analysts predict that the population in Jackson County will increase by 1.43% annually between 2005 and 2010, and that annual growth will level off at about at just over 1 % per year by 2040.29 That means an estimated county population of 208,370 by 2010. However, the April 2003 issue of American Demographics picked the Medford-Ashland MSA (Jackson County) as one of 22 "magnet markets" in the United States. The research in this issue predicts a Jackson County population of 226,198 by 2010.30 Racially and ethnically, Jackson County is less diverse than Oregon as a whole. However, the Hispanic population has been steadily increasing and is expected to continue to grow. Figure 15 below shows this growth. Hispanic residents made up 7.9% of the population in 2004, compared to 9.5% of the total in Oregon and 14.1 % in the U.S. The proportion of Hispanic residents is growing in Jackson County, from 3.0 % in 1980, to 4.1 % in 1990, to 7.9 % in 2004. 27 State and County Quick Facts, Jackson County, Oregon, U.s. Bureau of the Census 28 Northwest Area Foundation, Indicators for Jackson County, Oregon. Source: 2001-2005: U.S. Bureau of the Census, Population Estimates Program, 1h!tp:! /www.census.gov/popest/counties/) 29Forecasts of Oregon's County Populations and Components of Change, 2000 - 2040, Portland State University, Population Research Center. 30 Oted in Regional Profile, Industry Employment in Region 8, Oregon Employment Department, Fall 2004, and p.5. "Magnet markets" have a high diversity quotient or a large senior population and are expected to grow the fastest over the next twenty-five years. Ruth Metz Associates Jackson County Library District Feasibility Report 20 Figure 15: Hispanic population: Jackson County, Oregon, 1980-200431 Hispanic population Jackson C01mty, Oregon, 1980-2004 - Hispanic 18,000 I 15,000 OJ 12,000 a. 0 OJ Cl. 9,000 6,000 3,000 ~~...84 13~Q__~~~!~---- 12~.9.- ----- _:~_'iig 3,ifB--/ I 1980 I 1990 I 2000 Year I 2002 I 2003 I 2004 Industry Diversification The economy of Jackson County and of the Rogue Valley region has been changing over the past few decades. There is more diversity in industries compared to the agdculture and manufacturing of forest products that dominated the region's past. According to a recent analysis Jackson County was ranked the 7th most industry-diverse cOUlnty in Oregon.32 Jackson County and the region are increasingly becoming a center for trade and services. In addition to the County's strong wholesale and retail trade, it has a higher percentage of employment than the rest of Oregon in art, entertainment and recreation, health care and social assistance, and accommodations and food services?3 Occupational Growth All major occupational groups in the county and the region are expected to show job growth over the coming decade. Farming, forestry and fishing, transportation and materials moving, and production occupational groups are expected to grow more slowly in the region than statewide. Jobs in health care, management, business, and finance, maintenance and repair, construction and extraction, and sales and services are expected to outpace Oregon as a whole. In 2003, Jackson County ranked 6th from the top among Oregon counties in the number of jobs. Figure 16 below shows job growth between 1969 and 2003. Jobs increased by 31 Northwest Area Foundation, Indicators for Jackson County, Oregon, Source: 1980: U.s. Bureau of the Census, Census of Population and Housing, USA Counties 1998, (http:/ / tier2.census.gov / usac/ index.html) 1990 and 2000: U.s. Bureau of the Census, Census of Population and Housing, l.!illl2.;ilfactfinder .census. gov) 2002-2004: U.S. Bureau of the Census, County Population Estimates - Characteristics, April 1, 2000, through July 1, 2004, (http://www_census.gov /popest/ counties/ asrh/CC-EST2004-alldata_html) 32 Industry Employment in Region 8, Oregon Employment Department, Fall, 2004, p. 2 33 Ibid. p. 2 Ruth Metz Associates Jackson County Library District Feasibility Report 21 206% compared to an increase of 128% in Oregon and an increase of 84% in the U.S. There were 109,109 in 2003 compared to 35,645 in 1969.34 Figure 16: Total Number ofJobs, Jackson County, 1969-2003 Total nwnber of jobs Jackson County, 1969-2003 .... '# of Jobs 120,000 100,000 00 80,000 .0 0 ~ 60,000 40,000 20,000 ~~ ~ 1 1 1 1972 1976 1980 1984 1988 1992 1996 2000 Years J Jobs will grow from 96,878 to 111,881 between 2002 and 2012 in Jackson and Josephine counties, an increase of 15,000 jobs or 15.5%.35 In addition to job growth, another 17,000 jobs are ex~ected to be available due to replacement needs: retirements, deaths, and disabilities. 6 For the next decade, an estimated 42,000 job openings from growth and replacement are expected to be available in the region.37 While some of these jobs will require competitive levels of education and command wages above $38,000, over half of them will be under $28,000 per year and require minimum education with on the job training.38 Workforce Aging Meanwhile Jackson County and the Rogue Valley region's population and its workforce have aged in the last decade. According to the 2000 Census, Jackson County's median age of 39.2 was the 15th highest of all Oregon counties. Jackson County and the region have a slightly higher percentage of those 50 and older than Oregon statewide and a lower percentage of those 44 and younger. According to recent estimates, 1:;.5% of Jackson County's population was age 65 and older, compared to 12.7% statewide. The percentage of the county's population 0-17 was about the same as Oregon's. 39 341969-2003: Bureau of Economic Analysis, Regional Economic Data, Local Area Personal Income, Table CA25, (http://www.bea.gov !bea! regional! reis!) 35 Regional Profile, Occupational Employment in Region 8, Oregon Employment Department, Fall 2004, p. 1. 36 Ibid. p. 2 37 Occupational Employment in Region 8, Oregon Employment Department, Fall 2004, p.1 38 Ibid. p. 6 39 U.S. Bureau of the Census, County Population Estimates - Characteristics, April 1, 2000, through July 1, 2004 Ruth Metz Associates Jackson County Library District Feasibility Report 22 Implications for the Jackson County Library of the Future The lower than average income in Jackson County underscores the importance of the library as a place where everyone can access books, computers, and information. When it comes to learning, the library levels the playing field, especially for the poor, low income, and those of modest means. The library must be ready to meet the demand for hours, collections, and computers for a growing population. The library service plan already emphasizes services to children, but more children can be reached if the library expands its outreach to providelrs who serve children and families. The growing numbers of children whose learning and future success is at risk make it imperative that the library reach children through their parents, teachers, and adult caregivers. The library must be purposeful in helping to prepare people for the diverse occupations and numerous jobs that will become available in the county. Library leaders should be at the table with business and educational leaders, planning a coordinated prugram of educational support with specific outcomes. The county is seeing an increase in the number of retired persons living in the county. Not only must the library find ways to serve the growing senior population, the library can also capitalize on the growing retired community to bolster its volunteer corps. According to a 1999 Employment Department survey, the top three reasons people moved to the Rogue Valley were: to be with family and friends, to enjoy the quality of life, and to enjoy retirement. 40 People want to improve the quality of their lives in Jackson County but they do not want growth to compromise the best of Jackson County: its scenic, unspoiled beauty, open spaces, and sense of community. With its buildings, collections, and programming for all ages, the library can actualize "quality of life" in the county. The libraries are a focal point of community identity and cultural activity. It is important to take care of these assets and to provide the resources to sustain and develop them as the county population grows. 40, Workforce Analysis, Region Profile, Population in Region 8, Jackson and Josephine Counties, Oregon Employment Department, Fall 2004, p. 5. Ruth Metz Associates Jackson County Library District Feasibility Report 23 JACKSON COUNTY LIBRARY OF THE FUTURE Based on the data obtained from this study, the Library Advisory Committee developed a vision for the future of the Jackson County Library. The vision assumes that a library district will be formed to govern and fund the library independent of Jackson County. The following vision statement drives the library district service plan and budget. Vision for the Future Each library facility will be a source of pride in its community. It will be a center of its community's intellectual and cultural life, a gathering place, a resource for independent learning, and a magnet for every age group, young and old. The library buildings, both inside and out, will be aesthetically pleasing and welcoming, efficient to operate, and well maintained. The books and other information resources of the library will be optimally accessible, easy to locate, and convenient to use, both on site and from the Internet. The library system will use advances in information technology to continually further the effectiveness and efficiency of library service for its patrons. The library system will offer abundant and superb collections. Our libraries will be friendly places with skilled, approachable, capable staff The program of service will be focused, dynamic, and sustainable. Our libraries will be child-friendly and nurture children's love of reading and learning. Our library system will be a leader in furthering the economic development of our communities and Jackson County. The library's leaders will forge strong partnerships with other organizations in pursuit of common goals. Our library system will be an organization whose staff is valued and proud of its work. Our libraries will be well-used, well loved, and well-supported by their communities. Our library system will be fully funded, financially healthy, and well-managed. Ours will be a library system that is responsive to the public and nimble in meeting the dynamic needs of our diverse communities and a growing, developing Jackson County. It will be a library system that is known, respected, and emulated for its ability to engage the public, to make the most of its resources, and through its network of advocacy and partnerships, to be a "lO" library on an "8" budget.41 41 This means that the library will be an excellent library (a "ten" on a IO-point scale) at an efficient cost. The Jackson County Library is known for accomplishing a great deal with its funding. The Library Advisory Committee wants the Jackson County Library district to continue in that same tradition of providing good value for the cost. Ruth Metz Associates Jackson County Library District Feasibility Report 24 LIBRARY DISTRICT SERVICE PLAN Topping the public's list of library services are better collections, more reader and information services, and more generous hours. 42 The new and renovated libraries are increasing the use of collections and services and the demand for more. People want to get into their libraries to gain access to the collections and information services, use the computers, and enjoy reading and finding the information they need. The estimated budget for the Jackson County Library district is based on continuing and increasing the services the public says it most wants: . Increase the number of hours open by at least 40%, from the current 477 per week to 668 per week. This would have most branches open 5 or 6 days per week and 3 branches open 7 days per week. The Central Library in Medford would be open 68 hours per week. Provide more frequent delivery services throughout the system to transfer more materials as the result of the expected circulation increase. · Increase the book collection from its present funding level of $611,000 to at least $900,000. This would increase per capita spending from the current $3.14 to at least $4.62. Emphasize popular materials. Provide the clerical and technical support to add the materials purchased to the online database. . Increase reader's services and information services to all age groups as well as to those who are homebound and to child service providers. Increase online computer time allowance and remote access to library information and readers advisory services from virtually anywhere. Provide reference and reference referral training to branch staff. . Provide semi-annual book talks in grades 3-5 classrooms, provide regular in- library programs for preschool and grade school children year round, and have a children's librarian available several hours per week in each branch library. Provide semi-annual book talks for young adults and have teen services librarians available on a rotating basis throughout the branches. . Engage broad-based awareness and use of the library. Provide regularly scheduled adult programming throughout the library system. Increase the capacity of the Jackson County Library to generate revenue through grants, sales, and fees. Increase the number of volunteers to help the library provide these services. 42 Jackson County Library Survey Results, October 13, 2005, compiled by Jackson County Library Administration Ruth Metz Associates Jackson County Library District Feasibility Report 25 LIBRARY DISTRICT BUDGET AND TAX RATE The estimated budget for the proposed library district is $13.35 million in its first year of operation (FY 2007 j08). Below, Figure 17 shows the estimated revenues and expenditures for the first three years of library district operation. Built into the estimated budget are personnel, materialsj services, books and other formats that make up the collection, capital outlay, capital improvement reserves and general reserves. The library district, as an independent entity, will need to build a reserve fund to maintain its assets. Assets include its facilities, equipment, and technology. The library district will also need an operating fund balance for unanticipated expenses. Note that estimated revenues exceed operating expenditures each year; this creates a fund balance that is carried forward into each successive year. Together with reserve fund interest, the library district would carry a modest fund balance equal to about 15%, on average, of its annual operating budget. This is a reasonable and conservative margin for operating a library district independently. Figure 17: Jackson County Library Estimated District Budget Revenues 2007/08 'Year 1 200&'V9 Year 2 District taxes Prior taxes (2nd year) Prior taxes (3rd year) Prior year interest Other library revenues Total Revenues $14,722,637 $ 15,458,769 $ 308,327 $ 575,563 $ 15,298,200 $ 604,341 $ 16,371,437 Prior year carry-forward Reserve funds: interest Carry-forward (% of prior year expenses) $ 1,942,074 15.25% Expenditures Personnel Materials/Services Books Total Operating Capital Outlay Short-term interest Capital Improvement, General Reserves TOTAL EXPENDITURES 2009/10 Ye.llr 3 $ 16,Zn,707 $ 323,744 $ c~498 $ :77,683 $ 6:W,558 $ 17,360,191 $ 2,)00,958 $ 20,000 16.50% $ 9,169,954 $ 9,670,637 $ 10,154,169 $ 2,661,172 $ 2,820,842 $ 2,990,093 $ 900,000 $ 954,000 $ 1,011,240 $12,731,126 $13,445,479 $ 14,155,502 $ 75,000 $ 75,000 $ 75,000 $ 50,000 $ 50,000 $ 50,000 $ 500,000 $ 500,000 $ SOO,OOO $13,356,126 $14,070,479 $ 14,?SO,502 Ruth Metz Associates Jackson County Library District Feasibility Report 26 Setting the Tax Rate Setting the tax rate for a library district in Oregon is a conundrum. One wants lhe tax rate to be reasonable. At the same time, the rate must be adequate to sustain the library indefinitely. By law, the tax rate for the library district is permanently set in the ballot measure that establishes the district. The tax itself may be under-collected, but the rate cannot be increased. The amount of revenue generated from a district property tax will vary according; to the assessed property value: as assessed value increases, decreases, or remains flat, so will the revenue generated by the permanent rate. Economic conditions will affect the gross revenue generated for the library district. Various other factors will affect the net receipts, such as the urban renewal district, non-profit housing, and new consb'uction growth. To generate sufficient revenues to sustain the proposed library district service levels and budget, the tax rate must be at least $1.18 per thousand dollars of assessed valuation. At this rate, the library district would collect an estimated $14,722,637 in its first year. This takes into account the county tax collection rate.43 Together with library program revenues, the library district would take in an estimated $15,298,200 its first year. The following section describes what is included in the library district budget. Exhibit A shows the estimated budget of the Jackson County Library district over twenty years. Exhibit B shows the estimated revenue generated by tax rates at various increments. Examining these two exhibits together will illustrate that the library district needs a tax rate of at least $1.18. Revenues In the library district budget, the estimated library district tax receipts are based on the assessed valuation of district-area property, adjusted by the Jackson County Assessor, to produce the "value to compute rate." Including new construction costs, the assessed valuation has increased at an average rate of 5.77% over the last eight years, according to the Jackson County Assessor. The estimated library district tax revenue in Exhibit A assumes a 5% annual increase in the "value to compute rate". The library's other revenues include fines and fees, grants, reimbursements, and gifts and donations. Exhibit C: Revenues, shows a detailed description of recent year revenues for the library and estimates for the first three years of library district operation. Some of these program revenues such as "grants" are designated for specific purposes while others are umestricted and may be used as the library board and administration sees fit. Some revenue titles show no receipts; they are included as place- holders to suggest additional revenue sources for the library district. 43 Jackson County's tax collection rate, according to County officials, is 98.1 % over three years. Revenues in the library district budget show current year, second year, and third year receipts using these collection rates: 1" year, 95.5%; 2nd year, 20%; 3,d year, 0.6%. Ruth Metz Associates Jackson County Library District Feasibility Report 27 Expenditures: Personnel Personnel costs are based on the library's salary and benefits schedule adjusted for step increases and cost of living increases. Exhibit 0 shows the staffing plan for the library district. It builds on the current staffing of the library. Notes at the bottom of the Exhibit explain the basis for estimating the cost,> in FY2006-07 (the base year) and in the first two years of the library district's operation (FY 2007-08 and FY 2008-09). Thereafter, these personnel cost estimates increase in the 20-year budget by 5% annually. Expenditures: Books The library collection is budgeted at $900,000 in the first year. This increases the book budget by nearly 50% over current spending and would bring per capita spending for the collection to about $4.61 compared to the current rate of $3.08. Thereafter, the book budget increases by a factor of 6% per year. The book budget will be supplemented with gifts, donations, and grants. Fund-raising for the collection will continue to be a function of Friends groups and the Library Foundation. Additionally, the district governing board can decide to increase the book budget as revenues are realized and as wisdom dictates. Expenditures: Materials and Services For comparative purposes, Exhibit E: Materials and Services, provides library budget line item detail for three pertinent years: the budgeted current fiscal year (2005-06), the county's estimated FY2006j07 budget, and the estimated budget for the first year of library district operations (FY 2007 j08). Materials and services costs are expected to increase by 12.59% in the county's FY 2006-07. The major increases are expected in facilities and energy costs. The first year budget for the library district has materials and services costs increasing by 11.02% over the FY 2006-07 estimated budget. This estimate takes into account the normal annual cost increases as well as the higher service levels in the district plan. The library materials and services budget also includes" corporate costs." These are the costs of doing business independent of the county. Much or all of the corporate costs are accounted for in current operations because the county charges the library budget for county "corporate costs." These are shown in Exhibit E under the current fiscal year (2005-2006) budget. An independent library district will need to either provide or obtain comparable services. The costs under the district are likely to be comparable to the costs under the county. The library district may wish to contract with the county for all or some of the services it is now providing to the library, particularly in transitioning to a district. In any case, the budget includes provision for these services. It is impossible to know the exact cost of transitioning to an independent district. However, the district budget includes a reserve fund for the unexpected. Ruth Metz Associates Jackson County Library District Feasibility Report 28 Expenditures: Capital Outlay The capital outlay budget includes $75,000 in the first few years of the library district and then drops down to $55,000. Capital outlay includes large equipment purchases, such as a telephone system (the library is currently on the county's system.) As the library district organizes itself, a capital outlay allocation should be incorporated into the annual operating budget according to a realistic schedule. Reserve Fundi Capital Improvement Fund The reserve fund is crucial to sustaining the library district over many years. Note that the 20-year budget estimate allocates $500,000 annually to the fund. Its purpose is to: . sustain service levels over an indefinite number of years . sustain adequate service levels as population increases . take care of the library's assets: buildings, grounds, equipment, and technology . manage unforeseen expenses . increase service levels as demand dictates and resources allow (hours, locations, collections, programs) The fund must be sufficient to maintain the district's current and future library facilities over many years: to purchase, repair, and replace major facility systems such as carpet, furnishings, heating, ventilation, and air conditioning, the local area computer network, and business office systems. It must provide the capital for the inevitable information technology upgrades that sustain library services. As the county grows, the capital reserve fund seeds renovated, expanded, and possibly new library facilities. Ruth Metz Associates Jackson County Library District Feasibility Report 29 CONCLUSIONS A Jackson County Library district is feasible at a minimum rate of $1.18 per thousand dollars of assessed valuation. As the 20-year budget for the district shows (Exhibit A), this rate is needed for the service levels that will be provided. Revenues are based on current information about property values and the amount those property values will generate in Jackson County. The recommended minimum rate of $1.18 assumes that the library district board of directors will be working very hard to generate other revenue for the library. In fact, the library district budget is dependent on supplementing tax revenue with program revenue. Program revenue is any revenue that is not tax-based. It includes funding from the library Friends groups and the Library Foundation as well as that which can be raised through fees, fines, grants, gifts, and other means. The library district board of directors will be responsible for the overall financial well-being of the library. In preparation for a district election, a number of pertinent issues will need to be addressed by library district proponents. These include the issues of new taxes, the tax rate amount, the fate of O&C funding, compression, the proposed independence of the library district, and transitioning to an independent library district. Each of these issues is explained below. New Taxes Few people relish new taxes, or old ones for that matter. The greatest challenge for library district proponents will be to explain to voters why this new tax is needed. The fact is that the county will not have the financial resources to sustain current service levels much less the higher service levels that people want from their new and renovated libraries. Other mandated services will win out over non-mandated services, including the library. People are asking why the county did not anticipate the loss of O&C funds and plan accordingly. They are also asking why the county built and renovated libraries if it could not afford to operate them. Library district proponents must inform voters that the county's financial condition is in large part due to factors that could not have been anticipated in 2000 when voters approved the library bond measure. Factors include higher energy and gasoline fuel prices, federal mandates for emergency managemc~nt, and increases in health insurance and retirement costs for personnel. The increase in retirement fund costs has been in part the result of post-2000 stock market changes. Library district proponents must also clarify that the library bond could be used to build and equip the libraries but not to operate them. Ruth Metz Associates Jackson County Library District Feasibility Report 30 Fate of O&C Funds If O&C funds are reauthorized, for any amount or for any length of time, it may register with the general public that the county's funding problems are solved. In fad, the funding problem exists with or without O&C funds and this directly affects the library. The vision, service plan, and budget for the district go beyond saving or even maintaining the Jackson County Library. One goal is to save the library from closure, if necessary. Another goal is to improve it significantly and to sustain the improved service levels for the long term by securing a stable source of new funding. Tax Rate If the County Commissioners put the library district measure on the ballot at the recommended minimum tax rate or higher, it will be among the highest rates for a public library in Oregon. This will certainly put off some. However, others will see it for what it is: responsible planning and a statement about quality of life in Jackson County. It is a message that many people in the county could get behind and one that must reach the voters. Library district proponents should make the case that the per capita costs of the proposed district are reasonable, comparable, and competitive with peer Oregon public libraries. The most recent data shows (Figure 18 below) that Jackson County Library's per capita expenditure for library service under this plan would be reasonable and competitive. Figure 18 : Per Capita Expenditure Comparison Library Jackson County Library (FY 2005-06) Jackson County Library (FY 2006-07) Status quo Deschutes County Library District (FY 2005-06) Jackson County Library: District Plan FY 2007-08 dollars Multnomah County Library (FY2005-06) Corvallis-Benton County Public Library ( FY2005-06) State average (FY 2004-05) latest available Per capita $ 41.21 $ 41.40 $ 53.08 $ 61.35 $ 68.72 $ 70.17 $ 42.26 Compression Oregon's Constitution limits a local government's ability to levy taxes.<< The constitutional limit can cause a proportional "compression" of all co-existing non-school governments' statutory levy authority for a unit of property. The total of all permanent 44 Or. Const., Art. XI, Sec.ll (ll)(b) Note: The constitution requires all non-school governments with levy au.thority to share a maximum of $10.00 per $1,000.00 of each unit of property's real market value. County, city, fire district and other special district taxes on a unit of property may total a large portion of the $10.00 limit. All permanent tax rate authority has priority over local option rate authority. Ruth Metz Associates Jackson County Library District Feasibility Report 31 rates and all local option rates levied against a unit of property is determined. If the total is less than the $10.00 per $1,000.00 cap, then all taxes are collected. If the sum is. more than $10.00 per $1,000.00, then all local option levies are reduced proportionally to get under the cap. Information from the county suggests that in most areas of the county there is "room under the cap" for the permanent property tax rate being considered for the proposed library district. This means that most total permanent tax rates against units of property will not equal or be greater than $10.00. For the purposes of this study, the county did a macro-analysis of compression. The county's M5 Tax Gap worksheet45 estimates the difference or "gap" between taxes being levied by local government subject to the $10/1000 limit created by measure 5 and the unused portion of that limit. According to the county Fiscal Planning Director, Harvey Bragg, this macro analysis showed that while some cities have individual properties inside their limits that are in compression, overall there is room for a county-wide levy that would not cause significant tax reductions to any local government. If the real market value of property continues to grow faster than 3% the gap will continue to increase. Independent Library District The historic role of Jackson County in developing the Jackson County Library has been enormous. Still, city officials, the general public, and the Library Advisory Committee generally agree that the district has a better chance with voters if it is an independent district. An independent district will relieve the county of both the financial and administrative burden of the library. The governing authority for the proposed district would be a five-member board, elected from a slate of candidates on the library district ballot. It is important that these candidates have the ability to launch and govern a new library district as well as credibility with voters. District proponents must work diligently over the next several months to clarify the desirable qualities of the new library district board of directors and ensure a strong slate of candidates. The abilities and credibility of the first library board are of the utmost importance. Transition to a Library District Should creation of a library district be approved by voters in November 2006, taxes for the library district would begin to be collected the following November 2007 for the library's FY2007-08. A transitional funding plan will need to be in place so that library services can be provided without interruption. Being independent of the County will not be an easy transition for the Library. It may be in the public's best interest if a newly formed library district governing board contracts with the County to continue certain 45 M5 Tax Gap Estimates, FY 2004-05, Harvey Bragg, Jackson County, August 4, 2005 Ruth Metz Associates Jackson County Library District Feasibility Report 32 support services for one or more years. Other transitional matters include the disposition of fund balances, the transfer of assets, a variety of issues related to personnel, and timing of these transitions. The county and the library district board of directors should develop a transition plan that addresses these and related issues. Recommendations In conclusion, the feasibly study for a library district supports the following recommendations: 1. Establish a stable source of funding for the Jackson County Library through the creation of a special library district. 2. Include in the ballot title a tax rate for the library district of at least $1.18/$1000. 3. Make known to voters that library services are in jeopardy, regardless of what happens with 0& C reauthorization. 4. Emphasize that the per capita cost of the proposed library district is reasonable, comparable, and competitive with the cost of operating a respectable lihrary in Oregon. 5. Recruit a slate of candidates for the library district board of directors who have credibility in the County as well as the skills necessary to govern an independent library district. 6. If the library district is approved by voters, develop a transition plan for the library district. 7. Contract with Jackson County for support services to ease the transition from a county department to an independent district. Ruth Metz Associates Jackson County Library District Feasibility Report 33 <t: E-< ...... co ~ ~ ....... Q) on '"0 ::l co ....... u 'C ....... '" is ~ '"" ..0 ;:3 '"" ~ Q) >-< I .0 l: Q) ~ "'l 'C ~ t: s ~ ~ ~ It'l S t: S ~ ~ ..... "'" ~ t: S ~ ~ Q "'l ~ t: g ~ ~ "" 0\ ~ "0 ~ t: ... Q ~ ~ ~ .. ll.o Ii ~ 00 ~ ~ ~ ~ Q 0:: b ~ ~ ~ CIl S ~ ~ - ...l ~ ~ ~ ~ E:>", ~ ::l ,e ~ ...l ti ~] S ,~ -< 0 Cl ~ U '" - l:: ~ ~ 0 ,~ := ] ,~ X ~ '" ~ -- ~ ~ ~ ~ 18 ~ ~ ~~~~~~ t-.. <"l ..... ..... " ..... 00 0' ..... N fA fA fA fA fA fA t-.. co 0'\ co 0 N ~~S\~~~ .n..ori<"lo't-: 0'\ If) 0 0 0'\ If) CO <"l ..... ..... \C ..... t-: 0' ..... ..... fA fA fA fA fA fA ~ S ~ ~ N v' ..... 0 <"lo't-:N ~ ~ 0'\ 0'\ t-: ..... ~ ~ N \C ~~ 00 ..... fA fA fA fA fA fA R ~ ~ ;i~&f N <"l ..0 ..... ~ ~ &; \C If) ..... ~~g \C <"l t-: ..... fA fA fA fA fA fA 0'\ t-.. \C N t-.. <"l ~g "" <"l .n ..... fA fA t-.. <"l \C ~ ..,; ..... fA ... ~ ..... t-.. ;:il; ~ ~~ \C <"l ..0 ..... fA fA $ 8 If) N K!'~ If) N .n ..... fA fA ~ QJ >. '" &- c,'") 0 ~ co 0 co N 0 \C rio''' \C N ..... co N' fA fA ~ 0 ~ ~ 8 ~ 0'0' ' ~ N ~ N' fA fA ~ 0'\ 0 0'\ ;g 8 If) 0'0''' t-.. N ..... If) N fA fA ~ ~ 8 ~ 0\ 0 \!i g~"'" <"l N' fA fA ~ o N ~ ri fA '" .... ... ~ '" ~ ~ ~ .~ ~ ~ in ~ '2 1a ..E <lJ <lJ >. e: Ci QJ 'C ~ ~ p:: ~~~~8 ~~~~12 .....' <"l .....' ..0 ..... ..... 00..... 8 8 ~ o'o'.n 1f)0N If) ..... t-: ..... fA ;;1; fJ'tfAfAfAfAfAfA ~ co 0\ 0\ ::8 ~ tf'J~ ..... <"l ..... ri <"l' ri ..... 0\0000\ ~ 8 8 8 ~ o'.no'o'.n $ If) If) ~ ~ .n ..0 ..... ..... fA fA fA fA fA fA fA fA [::::~;::~08088~ co "" 0\ NON ~$~S12ggg \C ..... 0 0\ If) If) 0' <"l ri ",,' .n ..... ..... ..... fA fA fA fA fA fA fA fA \C 0 0 8 \C ~ 8 8 0 ~ riK!'gg~ ~ If) <"l N <"l ..... ..... .... .... o & p,:; ~ is .!:l .... '" n:l Q) "" .... u '.8 ,~ o ~ ..El ;.:l € ;:l o U ~ o ~ u n:l ,....., ~~~~888~ ~~;i12~ggo' .....CS\0..... If)~ 0' N ri ",,' ..,; ..... ..... ..... fA fA fA fA fA fA fA fA * If) N tri ..... t-.. ~ 0 12' 0 0 S< 0\ $ 00 8 ~ 8 8 15 ~ R~~~~ggR \C co 0\ "" If) 0 o'N <"l ..,; ..... ..... fA fA fA fA fA fA fA fA "" N 0 ~ ~ 8 ~~~ o'N fA fA fA fA fA fA fA fA ~ '" QJ '" l:: QJ Q., X QJ 1a QJ >. .... o 'C Q., ""' o '" QJ U '" 'E QJ c1S .E!Qj~ .... l:: ;a ~ l:: 'C '" Q)OQJ.;o: Q. ~ -:;; 0 ~ ~ ~ ~ '" 1a ~ o } ~ u bO ] .. ... Q) Q., o ;a ... o ~ '" QJ e: QJ '" QJ p:: ;a .... QJ ~ CIl i~ gj 6 Q ~ ~ ~ ,5 !5.. ~ Ej!l~ ~3:;J 1:: .... ~ o Q., 0 1Jia~ '" Q) .... n:l .... u o '" '" < .t:I Q) :;E .;3 ;:l p,:; ~ ';l 8 ;a ... 's.. ~ u R <<"l tn ~ gg tn 0 0 * 0\ ~ 0\ ~ 0 0 ~ ~ 0\ 00 ~ 8 <<"l ~ ~ ...... 0 0 ...... "" "" "" ...... ~ "" ~ 0 0 ~ g~ <<5' <<5' ~ i t-:'o t-: N ..... 00 N trl g t-:' 0\ "" "" <<"l N ...... tn tn R ...... tn 8 ...... l'l ...... tn ...... ...... 0\ 0\ r-.. r-.. 0 tn tn '- ... trl ..0 <<5' U"l trl ..... ~ ~ 00 "" N N ...... ~ ~ Lf) ~ fA fA fA fA fA fA fA fA fA fA fA fA fA fA fA c<"l ..( t!l r-.. ~ <<"l ...... ~ ~ 0 * N ~ <<"l 0\ 0 8 0\ E-< ...... -g, <<"l 0 ...... <<"l ~ "" 8 "" ~ <<"l ~ tn 0 0 0 <<"l <<"l 00 00 ...... ..... ~ ..0 r-..' t-:' ~ ..... ~ t-: g trl ..... R trl 0 ~ 0:1 co ... 00 <<"l <<"l <<"l 0\ ...... ~ ...... tn 0 - ~ ... 0\ "" ...... ...... 0\ ~ It) r-.. ~ <<"l tn ~ "" ~ trl <<5' trl -.i ..... t:l t:l ::s ~ N ...... ~ l'l ~ fA fA fA fA fA fA fA fA fA fA fA fA fA fA fA N 0 ~ 00 r-.. N tn 0 * tn -g, ...... 0 8 0 0 ~ ~ 0 00 <<"l 00 IS 00 <<"l <<"l ~ 8 ~ ...... <<"l 00 tn tn "" 0\ 0\ tn "" "" " o'trl 0 N N 0 00 ~ t-: t-:' trl ~ ~ trl g 0' Q <<"l tn <<"l <<"l 0\ tn ~ ...... 00 0\ tn tn ~ ... 00 "" ...... ...... co "" N "" tn <<"l tn 00 "" ~ ~ <<5' -.i -.i ..... 0 ~ ::s ~ ...... N l'l ~ fA fA fA fA fA fA fA fA fA fA fA fA fA fA fA ..... CI) OJ) "0 ;::l a:l ..... .~ .l:: en is ~ '"' .D ::3 !a CI) :>< I .0 s:: CI) ~ <.c S; ~ ... ~ ~ ~ It'J S ~ .. ::s ~ ..... l'l ,... o N III '" Q., ~ \l.l t:l Q ;J "l< " =:l ~ "" b ::s ~ _ l'l ~ ~ r./) is ~ =:l - ....l ~ b:i ~ ~.~ I=: .~ < 5 Q ~ U al - I=: .... =:l 0 o:l ::2 ] .s ~ ~ ~ OOO~~O\O\ ;:!; ~ ~ ~ ~ ~ N <<5' <<5' ..0 0 r-..' It)<<"l NNtn 00 r-.. "" ...... ...... 00 N t:l ~ fA fA fA fA fA fA g) gg ~ ~ ~ :B N......O~OOO\ ..o~~~g~ ~ "" ...... ...... 00 ...... ~ ~ fA fA fA fA fA fA ~~~~g~ o'<<5'N-.i~..... ~~;::;::~~ ~ t:l fA fA fA fA fA fA '" ~~ ~ ~ ~"Iii ~ "0 "0 ~ ~ ~ ~~~.~~~ ~B~~a~~ ati.l3.l3~::lg::: III ..6 .... .... .... ~ ;; ;'~OOo.s"" ~ 0 ;e ;e ;e 0 ~ N X ~ R 0 ~ ~~~ <<"l <<"l' fA fA ,...-4 0 ~ ~ 8 R ~~~ ...... <<5' fA fA r-.. 0 * 5S IS ~ oot-: ~ N...... N fA fA "0 a "Iii ~ ~ o ~ * ""i' .s ~ ~~ ~ ] QJ QJ >. i: ti QJ .>:: ~ 0.. ~ '" QJ i: QJ '" QJ ~ <a .... QJ !ii r./) ~ . H .; ~ ~ ~ Z li;l ~ ~.... 0 ~ r./) l'll ~ .s s.. ll-o ~ l8~.E~ 3 O<a';;:<a::l ~]';.-='t.-=~ o:lOof;Of;o ~~~u~u~ &:i ;:!; ~ It) It) "" t-:'.....~ 55 t!l '<I' cr)~~ ...... fA fA fA ~ 8 <<5'trl 00 It) N 0' ...... fA fA ~~~~8 tn'<l'NNO o'.....<<5'-.itrl ~8~~lt) N ",,' ..... 00 ,... ...... fA fA fA fA fA ~ ~ '<I' 0\ ~~ N<<5' ...... ~ ~ 8 ..otlR ~ <<"l .....t-:' ...... fA fA fA fA fA ,-.. '" QJ '" !ii p.. X QJ a QJ >. .... o .>:: p.. 1l "0 a ~ o I o:l U '" QJ .... .e ~ ~ I=: = S ~ l!l ~ ~ o It) IS f;j g~ It) 00 0' ...... fA fA .... c; 0.. Q) ~ .e-. is ,.0 .... ell o:l Q) ~ .... u ..6 ell Q ~ .t ;:J .e-. i:< ;:l o U i:< o ] u o:l -. 8 ~ g$ It) 00 00 ...... fA fA 8 ~ go' It) -g, t-:' ...... fA fA ell ~ .... u o ell ell <x: ~ :::E -5 ~ '<I' 0 ~ R ..... \0 00 8 ~ 00 ~ ~ to 0 8 to to ~ 0 00 to ~ 00 ..... 0 ..... to N N 00 N ['-.. Cl' '<I' N 0 N ..,; g N 0 ~ ~ ..0 0 Lri 0\' .n <ri' 0\' .n g ~ ~ QQ ~ Cl' 00 ..... 0 00 N ..... 0 \0 ~ Cl' to S .... ..... ..... <<l ..... \0 ..... ..... \0 to '" <ri' ...... ..0 ..,; ~ t-.:- N 0' ...... ~ ~ <<l <<l <<l <<l \0 ~ Vt Vt Vt Vt Vt Vt Vt Vt iJ't Vt Vt Vt Vt Vt Vt C'"l N <: R ..... 0 ~ N ['-.. to 8 ~ ::zl <<l ['-.. Cl' 0 0 Cl' E-< g:: '<I' 00 '<I' tn 00 ..... ..... 00 0 8 00 ...... \0 ..... <<l '<I' 00 0 to <<l <<l ..... 0 ..... ~ t-.:- 0 <ri' ~ ..0 ~' ~ 0 -.0 ~ 0 ..0 .....' .n g ..0 "l< " <<l :$ 00 tn ..... N ..... t!2 00 tn tn 0 ...... ..... ..... ..... N <<l to ..... N ..... to ['-.. ~ ~ .... ~ ...... ~ ..,; ~ ..0 N' ~ gl '" ~ ~ N ~ N ~ Vt Vt Vt Vt Vt Vt Vt Vt iJ't Vt Vt Vt Vt Vt Vt to ['-.. Cl' to ~ ..... to 0 ~ 8 ~ N \0 0 8 \0 0 \0 ..... \0 ..... 0 8 ..... 0 ~ 8 ~ <<l '<I' '<I' 00 to \0 \0 <<l N \0 Cl' ['-..' 0 ~ t-.:- '#, ..0 ..0 ~ -.0 ~' ~ ..0 ...... .n 0 ..0 ~ <.0 0 ~ \0 to to ..... tn 00 to 0 ~ ~ .... \0 ..... ..... ..... ['-.. <<l ..... <<l ..... \0 to '" 0 ...... N' ..,; a:: ..0 N ~ ~ ~ ~ <<l <<l ..... N N ~ Vt Vt Vt Vt Vt Vt Vt Vt Vt Vt Vt Vt Vt Vt Vt ...... Q) OIl "'C ::3 o:l ...... u "C ...... CIl is ~ ~ .0 ~ ~ Q) >- I C s:: Q) ~ N ~ S ': ~ ~ .... "l< ~ ': ~ ~ ~ <f) QJ ~ Il. Ii ~ Q ;J Q ~ b ~ ~ S ~ ~ r:Il Q ~ = .... ...l ~ ~ ~ ~'O lS Jl :3 t ~ ',S < g a Eo< u '0 ~ 8 ~ 63 ] .~ >< U III ~ ~ ~ ;::~;::15~8J 00 <<l ..... \0 to to ~li$;i~~ T""'4 In '1"""'4 ~ ~ t""""I gj' ~~ ~ Vt Vt Vt Vt Vt Vt 00 N <<l to 0 00 ~ ~ ~ ~ ~ ~ ......<ri'~.n.n..,; t!2 [g ~ ~ ~ ~ ~ ......gl Vt Vt Vt Vt Vt Vt ~~R~~~ L~ <<l \0 '<I' \0 00 a:: ['-..' 0 a:: <ri' g ~~~;::8<<l ~ ......~ Vt Vt Vt Vt Vt Vt .... Q) 'C' <'d QJ >-. '0 III cG (\J '-' ~ ~ rfi ~ t B ~ .~ ~ - ... .;:: ~ Cl Cl.. III Q) 'i ::l Q) .... m i ~ ~ ~ ~.~ ~ ~ ~83il6; .... >-. ... ~ .s ~ gQ) ;;; ....;:: '0 Cl.. Cl.. Eo< Cl'8~ ~ 0 tn ..00-.0 Cl' N ..... ..... ..,; Vt Vt ~ 0 ~ N 00 ~ ~ '-.0 ~ ~ ..... ..,; Vt Vt 00 0 * \0 0 c;. ~~-.o 00 N ..... 00 <ri' Vt Vt '0 :;; t;; ~ ~ ~ ~ .5 ~ ~ u; ~ ] :;; ..E Q) Q) >-. ~ ~ Q) .;:: ~ Cl.. ~ ~ ~ ~ ~~~ ~..oN ..... Vt Vt Vt ~ 8 00 0 ..o.n 00 to N ~ Vt Vt to Cl' tn Cl' 0 f3 ~ ~ R 8 ~ t!2' ~ ~ lR <<l \0 Cl' Cl' ~.n......~ Vt Vt Vt Vt Vt ~ 15 o 00 o~ ~ <<l ..o.n ..... ~ Cl' SO! Cl' ~ ~ o.n.n ..... 0 to 00 ['-.. ......~ Vt Vt Vt Vt Vt ~ III Q) III m 0.. x Q) ... <ll QJ >-. ... .9 ... 0.. 'Ci III Q) U bO III 'E ~ S QJ Jl ~.... .e ~ -;;, to 8 ;as~ 0] ~ 0 Q) ] ;;; .... Q..i!l~g'O~ ~ ~ :::E = Eo< U "=' ... <'d ~ o t u o \0 o Cl' o 00 g...... to ~ ~ Vt Vt .... ... o 0... ~ ~ ~ ~ ,.!:l .~ (l) ~ .... U '.6 a ~ ] ;::l f o U !:< o III ~ U <'d -. 8 ~ ot-.:- o ..... to to .n N Vt Vt o Cl' 8 ~ 00 o \0 to N ~ Vt Vt III Q) ~ Q) III Q) ~ <a ~ m r:Il ~ ~ ~ ~ .... m t:: ~ ~ Q ~ ~ ~ .S ~ Il. e oS ~ E <a ...l I .... < 1:: .... Eo< o 0.. 0 m II Eo< III 2 III ..... U o III III oo:x: .lj (l) :::E oS ~ <: E-< - o:l - ~ >< w 'a) Of) "0 ::s o:l - () 'C t; Q c ~ ..0 :i !a Q) >- I o s:: Q) ~ E-< .E ~ ~ ~ ~ ~ .,:; l ~ ] a (j ~ . 'S · Bi ~ Qj ~ lo. " ~ ~ Q., <"I ,... Ii C-' Q ;;J ~ tJ I.C O'l - ~ .... i:! <"I ; Vl Q ~ Q <"I ~ ~ - ...l ~ ~ ~ ~ ~ ,9 ~ ~ ~.~ ... .~ < 5 Q t:: U al CQ S 10 s: ~ .B ~ ~ ~ ~ <u '" ~ R ~ <'l 0 ~~ r-..' <'l QO r-.. 0\ ...... :3 ~ ~ ~ ~~i~ <"I....... QO "-<0' <'l V7 V7 V7 V7 V7 V7 ...... <"I <"10...... r-.. ~ $ a:: ~ ~ ~ ..-<"'..-<~.nN ~ R 1':l ~ ;:g a:: .n ..-<~ <'l <'l V7 V7 V7 V7 V7 V7 '" ~~ ~ ~ ~ ti ~ "tl "tl ~ ~ ~ ",~Jii:!~= QJ--::;;;j = '" ~ g) g) .~ .5 ~ ~=:::~~Qj;.::l~ u .., .., >. ~ Qj.E~~~QI"; ~ .~ .f:: .f:: .f:: -s "S ~ Q Q., Q., Q., 0 E-< ~ :3 0\ 0 ~o f:?J ~ .n V7 V7 r-.. 0 <"I 0 0\ 0 g~ .n V7 V7 ~ :3 \0 0 .no U"l <"I QO ..; V7 V7 ~ QI >-> .... "tl .5:1 ~ 1n ~ ~ QI..... >:; ~ 0 ~ .s~ SiIi"tl r3 ] ~ ~..E~-;;;- QI QlOQl >->1::.......'" ....Qli:'~ .s g) ~ 0.. Q., ..: U ~ ~ r-..' o <"I .n V7 ~ U"l <'l cO ...... ~~~!88 ..-l..-<[1~lR ~ ~ ,~ 0 ~~Ni V7 V7 V7 V7 V7 ~ o \0 cO ...... [::: \;C; ~ R :3 <"IQOO\oo .n.n~o.n \0 0\ \0 <'l U"l ...... U"l U"l <'l ~~N~ V7 V7 V7 V7 V7 '" .... QI '" u 1>0 ~ '" .E 'E 1C'.l!l Qj QI " -.::l .s ~Q)~ [8 S s ~ 0 ~ .l!l 5oQj~";:!::t: o..~~o...o..o ~~;Eil~a6l t-.. c<J o :3 g o o ...... .... .... o p.., (l) ~ ~ ~ ,lJ .... '" ctl (l) >x.. .... u ..6 .~ o ~ lS ;.:i ~ g U I:< o '" ..::<: u ctl ....... V7 :3 ...... o ~ g..-l U"l ~ i V7 V7 8 ~ gg U"l QO N <'l V7 V7 '" QI 1:: QI '" QI ~ ~ ~ = Vl QI '-'I (j ~ ~ E ~ Q ~ ~ ~Q., .a ~ ~ ...l .... -< .... E-< g-o U E-< '" ~ .... u o '" '" ~ .l:l (l) :E ..s ~ Jackson County Library Tax Revenue Table EXHIBIT B EXHIBIT B: TAX REVENUE TABLE, VARIOUS RATES, TWENTY YEARS (page 1 of 2) 100% collection rate Rate $0.60 $0.70 $0.80 $0.90 $1.00 Year 1 2007-08 $ 7,838,834 $ 9,145,307 $ 10,451,779 $ 11,758,251 $13,064,724 Year 2 2008-09 $ 8,230,776 $ 9,602,572 $ 10,974,368 $ 12,346,164 $13,717,960 Year 3 2009-10 $ 8,642,315 $ 10,082,700 $ 11,523,086 $ 12,963,472 $14,403,858 Year 4 2010-11 $ 9,074,430 $ 10,586,835 $ 12,099,241 $ 13,611,646 $ 15,124,051 Year 5 2011-12 $ 9,528,152 $ 11,116,177 $ 12,704,203 $ 14,292,228 $ 15,880,253 Year 6 2012-13 $10,004,559 $ 11,671,986 $ 13,339,413 $ 15,006,839 $16,674,266 Year 7 2013-14 $10,504,787 $ 12,255,585 $ 14,006,383 $ 15,757,181 $17,507,979 Year 8 2014-15 $ 11,030,027 $ 12,868,365 $ 14,706,702 $ 16,545,040 $ 18,383,378 Year 9 2015/16 $ 11,581,528 $ 13,511,783 $ 15,442,038 $ 17,372,292 $19,302,547 Year 10 2016/17 $12,160,605 $ 14,187,372 $ 16,214,139 $ 18,240,907 $ 20,267,674 Year 11 2017/18 $12,768,635 $ 14,896,741 $ 17,024,846 $ 19,152,952 $ 21,281,058 Year 12 2018/19 $13,407,067 $ 15,641,578 $ 17,876,089 $ 20,110,600 $ 22,345,111 Year 13 2019/20 $14,077,420 $ 16,423,657 $ 18,769,893 $ 21,116,130 $ 23,462,366 Year 14 2020/21 $14,781,291 $ 17,244,869 $ 19,708,388 $ 22,171,936 $ 24,635,48~; Year 15 2021/22 $15,520,355 $ 18,107,081 $ 20,693,807 $ 23,280,533 $ 25,867,259 Year 16 2022/23 $16,296,373 $ 19,012,435 $ 21,728,498 $ 24,444,560 $ 27,160,622 Year 17 2023/24 $17,111,192 $ 19,963,057 $ 22,814,922 $ 25,666,788 $ 28,518,6521 Year 18 2024/25 $17,966,751 $ 20,961,210 $ 23,955,669 $ 26,950,127 $ 29,944,586 Year 19 2025/26 $18,865,089 $ 22,009,271 $ 25,153,452 $ 28,297,634 $ 31,441,81:; Year 20 2026/27 $19,808,343 $ 23,109,734 $ 26,411,125 $ 29,712,515 $ 33,013,906 Rate $1.05 $1.10 $1.15 $1.18 $1.20 $1.30 Year 1 2007-08 $ 13,717,960 $14,371,196 $ 15,024,432 $ 15,416,374 $15,677,668 $16,984,141 Year 2 2008-09 $ 14,403,858 $15,089,756 $ 15,775,654 $ 16,187,193 $16,461,552 $17,833,348 Year 3 2009-10 $ 15,124,051 $15,844,244 $ 16,564,436 $ 16,996,552 $17,284,629 $ 18,725,Q15 Year 4 2010-11 $ 15,880,253 $16,636,456 $ 17,392,658 $ 17,846,380 $18,148,861 $19,661,266 Year 5 2011-12 $ 16,674,266 $17,468,278 $ 18,262,291 $ 18,738,699 $19,056,304 $ 20,644,329 Year 6 2012-13 $ 17,507,979 $18,341,692 $ 19,175,406 $ 19,675,634 $20,009,119 $ 21,676,546 Year 7 2013-14 $ 18,383,378 $19,258,777 $ 20,134,176 $ 20,659,415 $21,009,51'5 $ 22,760,373 Year 8 2014-15 $ 19,302,547 $20,221,716 $ 21,140,885 $ 21,692,386 $22,060,054 $ 23,898,391 Year 9 2015/16 $ 20,267,674 $21,232,802 $ 22,197,929 $ 22,777,005 $23,163,056 $ 25,093,311 Year 10 2016/17 $ 21,281,058 $22,294,442 $ 23,307,825 $ 23,915,856 $24,321,209 $ 26,347,977 Year 11 2017/18 $ 22,345,111 $23,409,164 $ 24,473,217 $ 25,111,648 $25,537,2;'0 $ 27,665,375 Year 12 2018/19 $ 23,462,366 $24,579,622 $ 25,696,878 $ 26,367,231 $26,814,133 $ 29,048,644 Year 13 2019/20 $ 24,635,485 $25,808,603 $ 26,981,721 $ 27,685,592 $28,154,840 $ 30,501,076 Year 14 2020/21 $ 25,867,259 $27,099,033 $ 28,330,808 $ 29,069,872 $29,562,5112 $ 32,026,130 Year 15 2021/22 $ 27,160,622 $28,453,985 $ 29,747,348 $ 30,523,366 $31,040,711 $ 33,627,437 Year 16 2022/23 $ 28,518,653 $29,876,684 S 31,234,715 $ 32,049,534 $32,592,746 $ 35,308,809 Year 17 2023/24 $ 29,944,586 $31,370,518 S 32,796,451 $ 33,652,011 $34,222,384 $ 37,074,249 Year 18 2024/25 $ 31,441,815 $32,939,044 $ 34,436,274 $ 35,334,611 $35,933,503 $ 38,927,961 Year 19 2025/26 $ 33,013,906 $34,585,997 $ 36,158,087 $ 37,101,342 $37,730,1'78 $ 40,874,360 Year 20 2026/27 $ 34,664,601 $36,315,296 $ 37,965,992 $ 38,956,409 $39,616,637 $ 42,918,078 Ruth Metz Associates Jackson County Library District Feasibility Report 38 Jackson County Library T ax Revenue Table EXHIBIT B Value to Compute the Rate Pa~e 2 of 2 Fiscal year VCR/$1000 2006/07 $ 13,064,724 2007/08 $ 13,717,960 2008/09 $ 14,403,858 2009/10 $ 15,124,051 2010/11 $ 15,880,253 2011/12 $ 16,674,266 2012/13 $ 17,507,979 2013/14 $ 18,383,378 2014/15 $ 19,302,547 2015/16 $ 20,267,674 2016/17 $ 21,281,058 2017/18 $ 22,345,111 2018/19 $ 23,462,366 2019/20 $ 24,635,485 2020/21 $ 25,867,259 2021/22 $ 27,160,622 2022/23 $ 28,518,653 2023/24 $ 29,944,586 2024/25 $ 31,441,815 2025/26 $ 33,013,906 2026/27 $ 34,664,601 Ruth Metz Associates Jackson County Library District Feasibility Report 39 u t:: P=l ~ ~ <Il (l) ~ ~ ~ S tI:l b'o o d:: ~ l-< .0 ;:l ~ l-< .0 ;:l o g U I:: o ] U tI:l -, (j~ t:z s~ ~E2 ~o- tJ~~ ~~~ 5 <: E- <: Q ~ gg Q~ ~tJ~~ ~~~N fil15 - E;~t'-. ~~~ o~8 U~N z o t ;l U tIl J,o;I Q J,o;I U ~ o tIl J,o;I " ~~'" g~~ ~i5N <: ~ Q .......J '06 ....;:;z ~ 0 ~ co ta ;:J a..:r:tJ <: CJ Z ~_Ln Ei:~~ E2~ Il.. CJ ~;?;~ 8~f3 ffiE2~ Il.. ~~~~m~~~~~~~~~~~~~~~~~~~~ ] '" .... ~ ol ~ 1:: ~ ~ 1l - Q.I ~ E= > :g 8 o~ co ~ .... Q i 5 ~~ .l!l 0 5 d:: ~ 19 ~ ~ ,SCJ 5 Q.I 'OJ ~ p<::Ui 00 00 00 -.00 N "" o o N ..... ~~~ ..... ClO '" <'l ~ ",' ~ ~ ~ '" '" ~ ~ Lri' ~... 0- ~< o "" 0- 0-' "" o ~ u) "" f/7 f/7 f/7 f/7 f/7 f/7 f/7 '17 f/7 f/7 00 88 00 "" "" o ~ ..... ~ t'-- 0 ""R~ ~~~ o 0 ~g:) 00'" 0-..... o o "" -.0 "" o ~ ~ "" f/7 f/7 f/7 f/7 f/7 f/7 f/7 f/7 f/7 f/7 0..... 0..;< ClO ..... ~o "" "" 8 N ..... ~ai58 .......... 0 ~ou) 0- ..... 0- ..... 00 00 ..;<"" ;;ga' o 8 <'l "" o o o ct5 N f/7 f/7 f/7 f/7 f/7 f/7 f/7 f/7 f/7 f/7 Iz '" Q.I ::l .... - ~ I~ Q.I ........0 - oc ~ 51", '" g :'30"2 I~.g "' 1::Q.I]~o~~~~ ~~ g ....~__~<U 8-n .5 52eo~s:;~5 ,"",_p<::o l:: E ~ 2 o~ 05 ~ - Ol ::: Q.I>Zo"'bl'" .lS~Q.I OJ '" ~o-!::'-Z'" oJ? !il~::l- ","E ~ CJ ~ ~ ~ s ~ 5 ...I~ 5 ~ ] ~ ~ e os o~ ~ ~ 2 d ~ ~ ~ ~ ~ 8 ~ .3 ;:J 1: ;e '" ~ "'Q.I' a1 ~. ~0,"Q.I e :E ~ ~ '3 .........ct=~~~ ~~QJi:8~ee[i 1:: ~ 0; ::l oc '" ~ 6.... <: o!:: " P::; ~ 80 Il.. E e Q.I 13 516 g ~ 5:g ~ Q.I ~ ~ ;;j 1:: Q.I 0 '- :> "l Q.I - ~ 051 .. l:! !3 .2 ~ ~ ~ E .l!l Q.I I'< 5 ., Q.IQ.I '" '" Q.I '.10.... .. ::l U _ 0 == ~ ~ ~.5 t 0 I"::: '0 ~ ..o~"'~".l:lQ.l~Q.lQ.I~"'....,,-,,, .... ~ ~ .g ~ ~ ~ '" ~ ~ ~ 5 ~ ~ ~ ~ ~ ~~8~8~~jCJ8;>8.3J'iJ'i.E ~N~~~~~~~~~~~~~~~~ o ClO '" ~~~ -.or-:: 0 ..;<""..... ~R8 ~a'~ ..... o ~ ~ 8 o ~ '" '0 1::1~ ~:)\ ClO f/7 f/7 f/7 f/7 f/7 f/7 f/7 "" f/7 f/7 ~;;J~ N~O '" "" ..... ~~~8 r-r) 0-.... 0\ "" "" ..... o 0 8 ;1; Oa' ClO o o "" .....' N o 8 ~ f/7 f/7 f/7 f/7 f/7 f/7 f/7 f/7 f/7 f/7 f/7 Ln R ~gl ct5 ..;< o o Ln ~ f/7 f/7 8 ~ffi ~ ~ ..... ~~~~~ ..;< "'..... -.0 a' ..... f/7 f/7 f/7 f/7 f/7 f/7 f/7 f/7 f/7 'r"""NC"")""t'lOco.......comO.....NM"Iltlt) ..........T""..............................NC'\INNNN -c-C'\I("')..,.LOc.o.......cocn~ LnNt'-. o-"'N ..;< 0 ~ f/7 f/7 f/7 LnNt'-. 0- '" N ..;< 0 ~ f/7 f/7 f/7 ~~~~ .....' f/7 f/7 f/7 f/7 '" '" s ~ .... ::l "'" .... i5 .s- 06 1;; <J)CJ ....;1l "'-lE- e e o 0 .... .... ........ '" ~ ::l .... ~ i E :r::3 e ~ ;;j ~j~ ~~c:;i~~ "'Nt'-."" ~~~~ N ~ f/7 f/7 f/7 f/7 ~~~~ ~ ~ f/7 f/7 f/7 f/7 ....."'t'-. ~g;~ ~~t2" "'t'-."" LO" ...c ..... ..... f/7 f/7 f/7 o ~ 1R12~ lQEfct5 Ln,,~ ~u) ..... ..... f/7 f/7 f/7 ~~~ gg~ t--..... 00 f/7 f/7 f/7 '" ~ '" 0 ..e 0.::1 ;;j,S .... oc ~ 1:: ~ 8 ~S o ti U OB ~ o!!l u Q ~~ ~ o~ ~ .E g OB '" ~ ~8 QJ ~ :c ~ .~ e ~ - ~ P:;f~ ~ '3 Q.I 0 CJ E- ~ l!:i ..... l-< o & ~ o is ~ <Il tI:l &: ..... u ".E <Il a ~ .t ;:l o S o U I:: o <Il ..:.i; U tI:l -, o ClO ClO S::12ai5 ~~g r-::ct5 f/7 f/7 f/7 ~~~ ~~~ r-::r-:: <Il (l) ..... tI:l 00 o <Il <Il <: .t:l (l) ~ ~ f/7 f/7 f/7 ~~~~~~~ ~ta'<'l N~f:i r-::r-:: f/7 f/7 f/7 f/7 f/7 f/7 f/7 Jackson County Library Library District Budget: EXHIBIT D Personnel Services EXHIBIT D: PERSONNEL BUDGET FOR DISTRICf EXPENDITURE DESCRIPTION FTE ESTIMATED ESTIMATED ESTIMATED (page 1 of 2) 2006-07 2007-08 2008-09 1 PERSONAL SERVICES: Salaries 2 Current staffing level 3 Shelver 6.0 140,089 145,693 151,520 4 Lib. Processing Assistant 2.0 50,923 52,960 55,079 5 Library Oerk 18.05 499,657 519,643 540,429 6 Sr. Library Clerk 5.45 143,697 149,445 155,423 7 Library Assistant 6.95 229,401 238,577 248,120 8 Sr. Library Assistant 2.70 97,328 101,221 105,270 9 Branch Supervisor 9.96 359,032 373,393 388,329 10 Sr. Branch/Circ Supervisor 3.0 118,229 122,959 127,877 11 Librarian I 0.0 0 0 0 12 Librarian II 13.57 671,421 698,278 726,209 13 Librarian ill 285 161,780 168,251 174,981 14 Library/Mail Courier 3.125 94,390 98,165 102,092 15 Office Assistant IT 20 55,364 57,578 59,881 16 Office Assistant m 1.0 30,205 31,413 32,669 17 Administrative Secretary (mgtj conf) 1.0 39,238 40,807 42,440 18 Program Manager I (mgt/ conf) 1.0 60,861 63,296 65,827 19 Senior Librarian (mgtj conf) 5.0 369,849 384,643 400,029 20 Library Director (mgt/ conf) 1.0 94,408 98,184 102,111 21 Library Systems Coordinator (union) 1.0 45,188 46,996 48,876 22 Subtotal regular staff 85.655 23 On-call Substitutes 5.62 154,769 155,831 171,309 24 Total Personnel Current Staffing Level 91.28 3,415,829 3,547,334 3,698,471 25 Increased Service Level Staffing 26 Shelver 5.50 100,543 108,586 117,273 27 Lib. Processing Assistant 1.50 29,745 32,125 34,695 28 Library Oerk 19.65 424,431 458,386 495,057 29 Sr.LIbrary Clerk 0.925 21,758 23,499 25,378 30 Library Assistant 6.55 167,797 181,221 195,719 31 Sr. Library Assistant 0.30 8,360 9,029 9,752 Ruth Metz Associates Jackson County Library District 41 Feasibility Report Jackson County Library Library District Budget: Personnel Services EXHIBIT D PERSONNEL (page 2 of 2) 32 Branch Supervisor 1.09 30,376 32,806 35,431 33 Librarian I 4.35 144,689 156,264 168,766 34 Librarian II 7.18 273,010 294,851 318,439 35 Librarian ill 0.15 6,539 7,062 7,627 36 Mail/ Courier 1.375 32,343 34,930 37,725 37 Office Assistant ill 1.00 23,522 25,404 27,436 38 Senior Librarian (mgtf coni) 3.00 194,201 209,737 226,516 39 Programmer/Analyst (mgtf conf) 1.00 48,311 52,175 56,349 40 Library Systems Coordinator (union) 1.00 36,386 39,297 42,440 41 Subt Additional Serv Staffing Level 54.57 1,542,011 1,665,372 1,798,602 42 On call substitutes 5.22 143,872 188,533 159,248 43 Subt all Additional Staffing 59.790 1,685,883 1,853,905 1,957,850 44 Salaries Current + Additional Staffing 151.065 5,101,712 5,401,239 5,656,321 45 PERSONAL SERVICES: Benefits 46 PERS RETIREMENT 27.62% 1,366,346 1,396,709 1,470,976 47 Workers Compensation $ 35.56 5,172 5,236 5,485 48 Medical Insurance Union $10,521 1,380,324 1,587,372 1,725,405 49 Medical Insurance Mgt/ conf $11,791 141,492 141,492 141,492 50 FICA Insurance 7.65% 378,441 386,851 407,421 51 Life Insurance mngt 6.50% 52,446 55,175 58,063 52 Disability mngt 7.90% 63,742 67,059 70,568 53 Vacation buyout 2.39% 121,679 128,823 134,907 psnl 54 Total Personnel Benefits Current +Additional 3,509,642 3,768,716 4,.014.316 55 Total Salaries and Benefits 8,611,354 9,169,954 9,670,637 56 benefits as % of salary 40.8% 41.1% 41.5% 57 58 Notes 59 Salaries for CURRENT staffing are at the top step (2005-06)*(1.0365) to establish a base figure for 2006-07. 60 Salaries in FY 2007-08,2008-09 for CURRENT increase by 4% 61 Salaries for ADDITIONAL staffing @ step 2, represented staff, management + 8% (step increase, COLA) Ruth Metz Associates Jackson County Library District Feasibility Report 42 Jackson County Library Library District Budget: Materials and Services EXl-HBIT E EXHIBIT E: LIBRARY DISTRICT BUDGET: 2005-06 200fHJ7 2007-08 MATERIALS AND SERVICES ( page 1 of 2) Budgeted Estimated :Estimated Archives $ 750 $ 550 $ 600 Binding $ 5,000 $ 5,000 $ 6,000 Building Maintenance Expenses $ 257,293 $ 369,157 $ 400,000 Computer Software $ 17,760 $ 19,400 $ 22.000 Contractual Services Charter fiber linej cable $ 26,160 $ 25,680 $ 27,000 Collection Agency (In SOLIS) Operating: OCLC Cataloging & ILL $ 45,000 $ 45,000 $ 67,500 PC Replacement $ 15,675 $ 1,925 $ 10,000 Programming $ 375 $ 30,000 Quest T-lline maintenance (see SOEN) SOEN data lines $ 76,092 $ 72,.084 $ 80,000 SOLIS adminj maintenance $ 363,227 $ 350,911 $ 360,000 SOU-ground courier share $ 1,200 $ 1,200 $ 1,260 Telephone $ 34,794 $ 29,452 $ 36,000 Copiers $ 12,969 $ 8,195 $ 10,000 Corporate Costs Audit $ 10,115 $ 12,874 $ 22.000 Accounting $ 38,168 $ 36,741 $ 35,000 Banking fees $ 1,500 Board of Commissioners $ 23,159 $ 26,323 CAO-GA $ 26,990 $ 28,287 County jlegal Counsel $ 10,870 $ 16,276 $ 25,000 Human ResourcesjEAP jEmp Asmt $ 85,220 $ 76,693 $ 150,000 County IT $ 32,404 $ 57,198 Insurance $ 143,909 $ 143,909 $ 150,000 Mail Services $ 3,056 $ 4,736 $ 5,500 Management Consulting $ 40,000 Treasury $ 11,169 $ 14,489 $ 10,000 Custodial Services contract $ 234,578 $ 235,328 $ 250,000 Data processing expenses $ 1,700 $ 2,570 $ 2,550 Election expenses Electricity $ 159,670 $ 160,535 $ 192,642 Equipment, minor $ 24,752 $ 43,274 $ 46,000 Equipment, minor, IT $ 25,461 $ 31,994 $ 35,645 Equipment maintenancejmaintenance contracts $ 6,536 $ 45,310 $ 25,000 Landscape (all buildings) $ 37,632 $ 45,090 $ 54,108 Ruth Metz Associates Jackson County Library District 43 Feasibility Report Jackson County Library Library District Budget: EXHIBIT E Materials and Services MATERIALS AND SERVICES ( Page 2 of 2) Memberships/ dues $ 499 $ 499 $ 899 Miscellaneous operating expenses $ 1,400 $ 4,040 $ 5,000 Municipal Assessments $ 7,821 $ 7,928 $ 8,134 Natural Gas $ 37,224 $ 57,210 $ 88,103 Office Supplies $ 87,992 $ 89,732 $ 92.392 Paper Product.. $ 10,200 $ 10,700 $ 11,730 Operation-Services: Internet E-Mail Accounts $ 9,900 $ 9,900 $ 13,860 Postage/Freight $ 9,900 $ 10,500 $ 13,860 Printing $ 10,200 $ 10,200 $ 14,280 Property rental and lease expenses $ 5,689 $ 553 $ 1,000 Security Services (alarm monitoring) $ 1,836 $ 3,072 $ 3,500 Special expenses $ 40 $ 1,565 $ 1,643 Telephone-all other $ 8,931 $ 9,391 $ 9,395 Long distance $ 700 $ 405 $ 700 Non-digital $ 10,620 $ 10,620 $ 11,000 Tires $ 500 $ 700 $ 850 Transportation Local $ 11,541 $ 4,650 $. 5,000 Motor Pool $ 16,013 $ 26,582 $ 44,126 Conference $ 4,450 $ 7,600 $ 9,000 Travel and Training Registration, tuition $ 4,075 $ 4,175 $ 7,344 Accommodations $ 3,560 $ 2,900 $ 5,340 Meals $ 2,260 $ 2,155 $ 3,390 Water & Sewer $ 15,835 $ 16,769 $ 20,000 Total Material & Services $ 1,992,870 $ 2,202,027 $ 2,465,853 Temp service (volunteer coordination) $ 20,096 $ 20,861 $ 21,904 Temp service (custodial @mostbranches) $ 56,227 $ 63,742 $ 89,239 Temp service (security for Central) $ 44,704 $ 47,802 $ 66,923 Web page design/maintenance $ 15,000 $ 15,000 $ 15,548 Pre-employment Physicals $ 1,160 $ 1,705 Subtotal Temporary Contractual Personnel $ 136,027 $ 148,565 ~; 195,319 Reserves $ 45,000 Total $ 2,128,896 $ 2,395,589 !, 2,661,172 Ruth Metz Associates Jackson County Library District Feasibility Report 44