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BERNiUDA DUNES ANNEXATION
FISCAL FEASIBILITY REPORT
March, 1996
Prepared for:
Ctty of Palm Desert
73-510 Fred Waring Drive
Paim Desert, California 92260-2578
(619) 340-5776
Prepared by:
Rosenow Spevacek Group, Inc.
540 North Golden Grcie, Suite 305
Santa Ana, Califomia 92705
(714) 541-4585
BERMUDA DUNES ANNEXATION
FISCAL FEASIBtLITY REPORT
I. BACKGROUND
The City of Palm Desert ("City") engaged the Rosenow Spevacek Group, Inc. ("RSC") to prepare a
fiscal feasibility anaiysis of annexing the communiry of Bermuda Dunes. This Report can be used to
meet certain applicable requirements of the Cortese-Knox local Government Reorganization Act if
and when the City desires to pursue annexation of the Bermuda Dunes community. Prior to
determining whether to pursue annexation, the City wants to ascertain the fiscal standing of the .
Bermuda Dunes community. This Report will focus on what City services will be provided within
the Bermuda Dunes area, the forecasted cost of those services, and what revenues could
reasonably be expected to be available to fund those services. This Report will focus on a
compilation of the forecasted reven�es and expenditures of the annexation area projected to fiscal
year 1998-99 using a range of potential fiscal impacts. lt should be understood that there will
usually be differences between the forecasts and actual results because events and circumstances
frequently do not occur as expeded, and those differences may be material.
The Bermuda Dunes area 1995 population is estimated at 5,362. The subject area is comprised of
approximately 3.2 square miles of territory. The estimated population figure is based on 1990
census information and enhanced by various trends and modeling techniques, including actual
population growth in the surrounding communities. A population estimate of 6,000 was shown in
a past appfication as submitted by a Bermuda Dunes community organization to the Local Agency
Formation Commission. A national research bureau has estimated the 1995 population of
Bermuda Dunes at 6,266. This population projection was derived using generalized assumptions
based upon age specific fertility rates, life expectancy, and net immigration. However, we believe,
based on actual population growth in the area, the popuiation estimates are too high. Even if these
higher population figu�es were used, the forecasted expenditures would stil! far exceed forecasted
revenues. The higher population figu�e would lower the fiscal deficits by approximately $75,000 or
896.
At the present time, the number of structures or dwelling units in the proposed annexation area
indude approximately 700 apartments, 1,200 single family residential units, 300 condominiums,
200,000 square feet of commercial space, an airport, a 27-hole golf course and clubhouse, and a
41-unit hotel. Bermuda Dunes is located in the centrai region of Riverside County. The boundaries
of the Bermuda Dunes community is generally the area along the Interstate 10 Freeway to the
north, excluding the Indio city limits, the east boundary Indio city limits, Fred Waring Drive and the
La Quinta city limits to the south, and along Washington St�eet up to the Interstate 10 Freeway to
the west Most of the area is stii) of a rural nature and similar to a�eas of the Coachella Valley.
Besmuda Dunes is predominantly residential and rugged terrain (refer to Exhibit 4).
Rosenato Spevacek Gmup,Inc. Bermuda Dunes Annexation
Marcb,1996 � Fiscal Feasibility Report
The major public agencies currently providing services in the Bermuda Dunes community are the
County of Riverside, Counry Service Area 121, and a Landscape and Lighting Assessment District.
The County of Riverside is currently responsible for policymaking and administration, .law
enforcement, animal control, planning and land use regulation, building inspection, flood control,
and the maintenance and improvement of roads. Street lighting services within the Bermuda
Dunes area are currendy provided through County Service Area No. 121. The landscaped median
located along 42nd Street between Limahal) Road and Glass Drive is currently being maintained by
Rive�side County through a special assessment district formed pursuant to the 1972 Lighting and
Landscape Act. Upon annexation, the City would administer the special district as the taxes would
be transferred to the City and detached from the County.
Water is currently supplied in the Bermuda Dunes area by the Myoma Dunes Water Company and
the Coachella Valley Water District. Upon annexation, the Myoma Dunes Water Company and
Coachella Valley Water District will continue to supply water to the Bermuda Dunes area as the
services is currently in place. Sewer service is currently, and will continue to be, provided by Septic
Systems and Coachella Valley Water District. Sewer lines currently exist at Fred Waring Drive,
Washington Street, and 42nd Avenue. The County of Riverside currently provides fire protection
services to the Bermuda Dunes community. Currently, one fire station, Riverside County Fire
Station No. 31, is located at 42nd Avenue and services a three-mile radius. The County of
Riverside is currently responsible for providing police services within the Bermuda Dunes area. The
law enforcement facility responsible for the Bermuda Dunes area are the Palm Desert and Indio
substations. Upon annexation, no change in fire or poiice protedion services are anticipated
because police and fire protection services are provided by the same Riverside County
organization. The roads within the Bermuda Dunes area are currently maintained by the County of
Riverside. Upon annexation, the City of Palm Desert will be required to maintain the existing
roads.
Many of the General Fund and Road Fund revenues and expenditures were either calculated on a
per capita basis, a marginal cost basis using actual budget figures from the City of Palm Desert, or a
case study methodology.
Rosenow Spevacek Group,Inc. Bermuda Dunes Annexation
March. 1996 2 Fiscal Feasibility Report
Il. REVENUES
i
A. GENERAL FUND �
I
The primary sources of General Fund revenues are noted bebw and shown on Exhibit 1 :
1. Taxes:
a. Property and Parcel Taxes:
The City's property tax revenue is based on the historical property tax ratio of
25�/7596 between the City and the County respectively as set forth in Resolution
No. 81-133 adopted September 24, 1981. Upon annexation, the City would
receive approximately 25°�6 of the total General Fund property tax revenue and
� the County would retain the remaining 75% of General Fund property tax
revenue. In addition, the City would also assume service responsibilities of
County Services Area ("CSA") No. 121. CSA No. 121 is wholiy within the
community of Bermuda Dunes and provides funding for street lighting. Upon
annexation, CSA No. 121 would be dissolved. One hundred pe�cent (100%) of
this special district's (evies would be transferred to the City (refer to. Exhibit 2).
b. Property Transfer Taxes:
The amount of Property Transfer Tax received wi11 depend upon the level of resale
activity within Bermuda Dunes. These revenues have been estimated using an
average of previous three (3) year property transfer activity within Bermuda Dunes
at the rate of.55� per $1,000 of assessed values.
c. Homeowners Properry Tax Relief
Revenue estimates generated from the Homeowner's Property Tax Relief were not
specifically projeded because this analysis bases the Property Tax Apportionment
on assessed valuation gross of the Homeowners Exemption. Therefore, revenue
from the Homeowner's Property Tax Relief is included in the Property Tax
Apportionment.
Roseriow Spevacek Groxp,Inc. Bermuda Dunes Annexation
Marcb, 1996 3 Fiscal Feasibility Report
d. Sales Taxes:
Upon annexation, the City will be eligible to receive a percentage of the sales tax
charged on qualifying retail sales from businesses within Bermuda Dunes. The
State Board of Equalization estimated that the commercial areas within Bermuda
Dunes are generating app�oximately $114,500 in sales tax revenues annually.
RSG has assumed a modest 3% increase on these sales tax revenues for Bermuda
Dunes (refer to Exhibit 3).
e. Transient Occupancy Taxes:
Upon annexation, the City will receive the Transient Occupancy Tax. The City's
Transient Occupancy Tax rate is 9%. Bermuda Dunes has one (1) lodging
establishment, the New Inn located within the Bermuda Dunes Country Club,
which has a total of 41 rooms. RSG has estimated the Transient Occupancy Tax
based on an occupancy factor and average room rate.
2. State Subventions (Motor Vehicle Fees):
Upon annexation, the City will be eligible to receive Motor Vehicle In-Lieu taxes. These
taxes are collected by the State's Department of Motor Vehicles and allocated to cities
on a per capita basis. Off-road Vehicle taxes are also allocated to cities by the State on a
per capita basis. Both subventions are based on 5,362 which is the estimated
population for Bermuda Dunes.
The per capita figures used in the revenue summary have been provided by the State
Controller's office for the 1995-96 fiscal year.
3. Franchise Fees:
Upon annexation, the City wi{I receive the franchise fees currently paid to the County
by Continental Cable Television, the Southern California Gas Company, Waste
Management, and Western Waste. These fees have been estimated on a per capita
basis using budget figures from the City of Palm Desert.
Rosenow Spevacek Group,Inc. Bermuda Dunes Annezatiarc
Marcb, 1996 4 Fiscal Feasibility Report
4. Development Related Eees:
The fees described below are not included in Exhibit 1 because these fees speci�lly
offset costs of development related services, only the "net" cost of these services are
indicated under "Expenditures".
a. Land llse Planning and Regutation Fees:
The City is author'¢ed to charge fees for all land use planning and regulation
services. The City would utilize the City's existing fee schedule. These fees should
� off-set most of the City's cost in providing these services.
b. Building Inspectlon and Permit Fees:
The fees collected for these building and permit inspection services should, in
most cases, totally offset the cost of these services.
c. Engineering Fees:
The City is also authorized to charge fees for plan checking, public works
inspection, permit issuance and review and other engineering services. The fees
collected for these services should, in most cases, offset the cost of these services.
d. Development Fees:
Under the provisions of State law, the City may collect development fees for the
purpose of construction or improving capita) facilities. Fees received must be
segregated from the General Fund in order to avoid commingling. Certain fees
must be spent or committed within five years from the time they are collected.
5. Other Revenues-
a. Fines and Forfeitures:
This represents both Motor Vehicle Code fines, tilunicipal Code fines, and other
miscellaneous fines and forfeitures. Motor Vehicle and Municipal Code fines from
Bermuda Dunes were estimated on a per capita basis using current budget data
from the City of Palm Desert.
Rosenow Spevacek Group,Inc. Bermuda Dunes Annexation
Masch, 1996 5 Fiscal Feasibility Report
b. Business License Tax:
Upon annexation, the City will 6e eligible to impose the City's current Business
License Tax. The Business License fee for the City of Palm Desert is calculated
based upon gross sales. Based on discussions with City staff, RSG has estimated
the amount of Business License Tax using an average Business License fee for the
local sales tax generators identified within the Bermuda Dunes annexation area
(refer to Exhibit 3).
c. Proposition A Fire Tax:
The Proposition A Fire Tax is calculated using a per parcel cost. This figure is
estimated using an estimated 700 apartments and 300 condominiums at a per
parcel cost of $36 per unit, and an estimated 1,200 single family residential units
at $48 per unit
d. County RDA:
Currently there exists along Washington Street and 42nd Avenue a County
redevelopment project area. A small portion of the County Redevelopment
Project Area is located within the City of Palm Desert, and the remaining portion
exists in the unincorporated Bermuda Dunes territory (refer to Exhibit 5). This
County Redevelopment Project Area consists of commercial and multifamily
residential use and is Iocated along Washington Street between Mountain View to
the south and just north of 42nd Avenue. In this analysis, it is assumed the City
would not take over the County Redevelopment Project Area and continued to be
maintained as a County Redevelopment Project Area. Because the County
Redevelopment Project Area would not be taken over by the City, no revenues
have been forecasted in this analysis.
e. Interest:
Because expenditures exceeded revenues resulting in no excess cash, RSG did not
include interest in this analysis.
Rosenow Spevacek Group,Inc. Bermuda Dunes Annexation
Masch, 1996 6 Fiscal Feasibility Report
B. ROAD FUND
All Road Fund subventions are calculated and allocated to the cities on a per capita basis, with
the exception of Section 2107.5. The State Subvention Section 2107.5 is allocated to the
cities based upon total population size. Because the annexation of Bermuda Dunes is only
adding 5,362 population to the existing 37,573 of Palm Desert, the added population will not
put the City's population above the next threshold. /�s such, no revenue is reflected relative
to Section 2107.5. Similar to other state subventions, road fund revenues initially would be
based at the estimated population of 5,362. Other Road Fund revenues include the voter-
approved Measure "A" sales tax distributed by it�e County Transportation Commission.
Revenues attributed to these gasoline taxes are restricted for use on road related maintenance
expenditures.
II1. EXPENDITURES
A. GENERAL Fl1ND EXPENDIT[.IRES
Expenditures have been categorized by departments within the City's organizational structure
and are estimated as follows:
1. General Govemment .
a. Adminisvadon:
The analysis assumed no new positions, equipment or major operating costs
would be incurred because of the annexation. Minimal expenditures including
legal costs, advertising, postage, and other selected services and supplies were
estimated. Costs associated with the 1997-98 election are shown. Costs were
estimated based on a case by case analysis or a per capita rate using City budget
data.
b. Insurance:
Upon annexation of Bermuda Dunes, it is probable that the cost of the City's
insurance policy will be impacted. RSG has estimated these costs based on
existing infrast�ucture and other public facilities within Bermuda Dunes in
relationship to the City's budgeted expenditure forecasts.
Rosenow Spevacek Group,Inc. Bermuda Dunes Annexation
March, 1996 7 Fiscal Feasibility Report
c. Animal Control:
Upon annexation of Bermuda Dunes, the current City animal control contractor,
i California Animal Care, will assume animal control services for this area. Costs
j were estimated assuming additional personnef and equipment as required by
California Animal Care. These costs are net of any animal license fee revenues.
d. County Property Tax Collecdon Charges:
Beginning in 1992-93, the County Auditor-Controller's Office charged cities and
local districts receiving property tax revenue for incidental administrative costs.
These charges are estimated at 2°�of all property tax revenues.
2. Public Safety: �
a. SherifPs Conuac�t:
The Riverside County Sheriff's Department estimates service costs on a per capita
basis. The City has indicated a desire to maintain a patrol beat to population ratio
of 1.5:1000, or approximately 9 officers for the Bermuda Dunes area. RSG
believes this estimated service level appears excessive in this particutar community
due to the existing calls for service and the open space character of Bermuda
Dunes. Thus, RSG has assumed based on discussions with City and County staff
that only 5 beats will be needed to provide sufficient police services to the
merchants and residents of Bermuda Dunes.
b. )ail Booking Fee:
Riverside County collects from its Cities a flat fee for jail bookings. Currently, the
present jail booking fee is approximately $110. Bermuda Dunes jail booking fees
were estimated based on jail bookings for the County incorporated areas in this
area and for the City of Palm Desert.
c. Fire Protection:
The Cities of Palm Desert, Indian Wells, and Rancho Mirage have entered into a
)oint Powers Agreement forming the Cove Communities Public Safety Commission
in order to provide fire and paramedic services. These costs are net of the
property tax levy of the County Fire District. Fire Protection expenditures were
estimated using Riverside County Fire budget costs. This expenditure reflects a
percentage of the assessed valuation based upon the 1995-96 total cost. The
estimated budget figure includes fire services staff costs, a one-time $110,000 for
new equipment and $12,000 for training and other maintenance services. This
Rosenow Spevacek Group,Inc. Bermuda Dunes Annexation
March, 1996 8 Fiscal Feasibility Report
estimated budget figure does not include optional paramedic services, which
would be an additional $330,486. This total was reduced to reflect the net cost of
services (less the 1% of the total assessed valuation of the Bermuda Dunes a�ea
multiplied by the Structural Fire Tax rate of .06025). Currently one (1) fire station,
Riverside County Fire Station No. 31, is located at 42nd Avenue and services a
3-mile radius.
3. Community Development:
Upon the annexation of Bermuda Dunes, the Community Development Department
will assume the p�ocessing of all land use related services. These services will, in most
cases, be off-set by fees. However, the City will be responsible for the preparation of a
Specific Plan. This one-time cost in 1996-97 reflecxs duplicating fees, printing, maps,
and other miscellaneous costs associated with the in-house preparation of the Specific
Plan.
a. Code Compliance Of�icer:
Upon annexation, it is anticipated that an additional Code Compliance Officer wil)
be required to provide code enforcement services within the area of Bermuda
Dunes. This expenditure is calculated using the first step in the City's payroll
salary range for Code Compliance Officer at $2,604 per month. RSG has included
an additional 35% of the annual salary to reflec[ benefits and an additional 10%
for supplies, minor equipment, and other overhead costs.
4. Public Works:
For purposes of this Report, it is assurned that the current level of service of
maintenance programs is sufficient to the community's needs. Upon annexation, CSA
No. 121 and other County responsibilities will be assumed by the City. The Public
Works cost estimates also include an altowance for rnntract services to administer these
programs.
a. Administration:
A minimal administrative cost impact based on a per capita factor using City
budget data is reflected. This cost represents supplies, meeting and travel costs,
equipment, and other services.
Rosenow Spevacek Gsoup,Inc. Bermuda Dunes Annexation
March, 1996 9 Fiscal Feasibility Report
b. Sveet Sweeping:
Upon annexation of the Bermuda Dunes area, the City will provide street
sweeping services to this area. This expenditure was based on discussion with City
staff using a curb mile estimate cost based on City budget data. Street sweeping
services are performed bi-weekly by the City of Palm Desert.
c. Sveet Lighdng:
Street lighting services within the Bermuda Dunes area are currently provided
through CSA No. 121. Upon annexation, CSA No. 121 will dissolve and all funds
will be transferred to the City. The forecasted expenditure is based on current
CSA No. 121 budget data (refer to Exhibit 2).
5. Parks and Recreatlon:
There is no anticipated financial impad relative to existing landscape maintenance
services. The landscaped median located along 42nd Street between Limb Hall and
Glass Drive is currently being maintained by Riverside County through a special
assessment district formed pursuant to the 1972 Lighting and Landscape Act. Upon the
annexation of Bermuda Dunes, the City would administer the special district as the
taxes wou(d be transferred to tf�e City and detached from the County. Thus, the
median would �ontinue to be maintained by the assessment district. Currently the
Bermuda Dunes area has no public park or open space areas. Additional costs
associated with the City's exiting recreation program is not anticipated.
6. Contingency:
A 10% contingency factor has been added to the General Fund expenditure estimate to
meet unforeseen programs or emergency needs. •
7. Roads:
a. Capitallmprovemenu:
Upon annexation, the City of Palm Desert will be required to pay for the 25%
local share for the proposed improvements at the interchange of Washington
Street and Interstate 10 Freeway. This forecasted expenditure, reflected in the
1997-98 fiscal year, is the City's share of the estimated construction cost plus a
10% contingency. No outside revenue source has been identified to fund this
capital improvement expenditure.
Rosenow Spevacek Group,Inc. Be�muda Dunes Annexation
Ma�ch, 1996 10 Fiscal Feasibility Repon
Upon annexation, it is the City's policy to upgrade existing infrastructure systems
within the annexation a�ea to meet or exceed current City standards. The funding
sources for capital improvements .within the Bermuda Dunes annexation area
were not identified because a capital improvement program (CIP) was not
developed nor required as part of this analysis. Therefore, in order to prepare a
CIP pian for the Bermuda Dunes annexation area, it would require the
preparation of an extensive and detai{ed infrastructure assessment analysis.
8. Road Maintenance:
a. Street Maintenance:
The street maintenance expenditure was estimated based upon estimated curb
miles and area size using budget data from the City of Palm Desert. This cost
reflects a 3% increase which includes general street maintenance; City-wide street
slurry sealing, overlaying and resurfacing, new and replaced curbs and gutters,
centerline striping, and safety and sign painting.
b. Traf�c Signal Maintenance:
Upon annexation, the City of Palm Desert will be required to maintain additional
traffic signals. The City of Pa{m Desert currently maintains 50% of the traffic
signals located along Washington Street at 42nd Street, Country Club Drive, and
Avenue of the States. Upon annexation of the Bermuda Dunes area, the City will
be required to maintain 100°r6 of these three (3) traffic signals and 25% of the
traffic signal located at Fred Waring Drive and)efferson Street.
IV. SIIMMARY OF FINDINGS
Based upon this fiscal analysis of annexing the community of Bermuda Dunes, the forecasted
expenditure estimated for fiscal year 1996-97 through 1998-99 concerning the general and
road funds exceed the estimated total revenues. Forecasted expenditures and revenues have
been calculated using conservative methodologies and modest escalation factors.
The forecasted expenditures exceed the estimated revenues for fiscal year 1996-97 by
$982,549, $1,400,980 for fiscal year 1997-98, and $977,050 for fiscal year 1998-99.
Because of the residential character and rural nature of Bermuda Dunes, the estimated
amount of local sales tax generated annually was minimal. For Bermuda Dunes area, there
were only 22 retail establishments identified with taxable sales amounts as provided by the
State Board of Equalizatio� (refer to Exhibit 3). The Bermuda Dunes community has very little
commercial activity with only one lodging establishment. Therefore, the City's forecasted
business license tax and transient occupancy tax amounts are significantly low.
Rosenow Spevacek Group,Inc. Bermuda Dunes Annexa[ion
March, 1996 11 Fiscal Feasibility Report
Because states subventions are allocated to cities on a per capita basis, the Bermuda Dunes
area with only a population of 5,362 wil) receive minimal motor vehicle and off-highway fees.
Based upon discussions with the City and County staff, RSC has assumed that only five patrol
units would be required to provide sufficient police services to the Bermuda Dunes area. The
forecasted expenditure was calculated based upon per capita costs utilizing the existing
supported rate for Riverside County Sheriff and using an escalation rate of 7%. The estimated
expenditure fo� the Sheriff contract amount for public safety senrices in fiscal year 1996-97 is
nearly 96% of the total general fund revenue estimate.
The Cities of Palm Desert, Indian Wells, and Rancho Mirage are part of a )oint Powers
Agreement in order to provide fi�e and paramedic services. The expenditures reflected in this
analysis are commensurate with the City's desire to maintain a high level of senrice in terms of
structural fire protection and suppression. The forecasted expenditure for structural fire
protection senrices in fiscal year 1996-97 is approximately 60% of the grand total general fund
revenue estimate. Thus, the expenditures for public safety services alone exceed the general
fund available by 88%.
Rosenow Spevacek Group,Inc. Bermuda Dunes Aanexation
March, 1996 12 Fisca!Feasibility Repon
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EXHIBIT 3
LIST OF LOCAL SALES TAX GENERATORS
WITHIN THE BERMUDA DUNES ANNEXATION AREA
1. Subway 4100 Washington Avenue #101
2. Lizett's Hair Design 4100 Washington Avenue #103
3. Ernst & Ernst Foods 4100 Washington Avenue
4. So Much More Wallpaper 4100 Washington Avenue #119
5. Carmen's Mexican Food 4100 Washington Avenue #123
6. Clam's Up 4100 Washington Avenue #125
7. Wonder Cuts 4100 Washington Avenue #129
8. Armond's Wholesale Merchandise 4100 Washington Street #133
9. Teddy's Donuts 2 4100 Washington Avenue #139
10. Lilli's Chinese Cuisine 4100 Washington Avenue #141
11. Circle K Food Stores 4100 Washington Avenue #142
12. Carl's Jr. 4050 Washington Avenue
13. Unocal 76-Chemic Inc. 4010 Washington Avenue
14. Coodyear Jack Sauter 78105 Country Club Drive
15. Murph's GaslighdMurphy's
Original Pan Fried Chicken 79860 42nd Avenue
16. Bermuda Dunes Country Club 42360 Adams Street
17. Darby West Care 78260 Darby Road
18. Larry Shaw Wholesale Plants 78400 Darby Road
19. California Desert Nursery 78600 Darby Road
20. Vintage Nursery, Inc. 78755 Darby Road
21. Cameron Nursery and Turf
Products 78850 Darby Road
22. Desert Cities Nurseries 41555 Yucca Lane
Source: State Board of Equalization
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Exhibit 4
Bermuda Dunes Annexation Area
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