Consolidation Study
for the Village of Albion,
Town of Albion
and Town of Gaines
March, 2009
Consolidation Study
for the Village of Albion,
Town of Albion
and Town of Gaines
March, 2009
This report was prepared with funds
provided by the New York State
Department of State under the
Shared Municipal Services Incentive
Grant Program
Prepared for:
Village of Albion, Town of Albion and Town of Gaines
Charles Zettek Jr.
Project Director
1 South Washington Street
Suite 400
Rochester, NY 14614
585.325.6360
100 State Street
Suite 330
Albany, NY 12207
518.432.9428
www.cgr.org
i
Consolidation Study for the
Village of Albion, Town of
Albion and Town of Gaines
March, 2009
SUMMARY
For several years New York State has offered grants to local governments
considering projects that would lead to shared services, cooperative
agreements, mergers, consolidations or dissolutions. The grants are known
as Shared Municipal Services Incentive (SMSI) grants1 and are awarded
on a competitive basis. The Town of Albion, Town of Gaines and Village
of Albion were awarded a grant to study options for sharing services up to
and including full consolidation of all three municipalities.
The Towns are located in central Orleans County in Upstate New York
and both incorporate a portion of the Village. The three municipalities are
represented by their own governments, and together serve a population of
12,420 residents living within 60 square miles.
The municipalities appointed a 10-member Consolidation Study Grant
Committee, consisting of elected leaders and residents from the Village
and Towns, and engaged the nonprofit Center for Governmental Research
(CGR) to conduct the study. CGR's main objectives were to review
existing service delivery and costs; identify and evaluate viable
consolidation alternatives and consider tax and cost impacts; and outline
action steps for implementing the one alternative selected by the
Committee.
This report begins with an overview of the full study, which includes
CGR's key observations and findings, the Committee's recommendation
to pursue dissolution of the Village - thereby reducing one level of
government - and action steps associated with implementing this
recommendation. An appendix following the overview includes relevant
1 In 2008, the New York Department of State renamed the grants Local Government
Efficiency Grants (LGEG).
ii
detailed information CGR developed during the study and consists of the
following:
Appendix A: Description of how services are currently delivered -
including services, personnel, resources, revenues and costs - and
potential ways to share services without actually merging the three
governments.2
Appendix B: Fund balances for the Village and Towns for the years 2000-
2007.
Appendix C: Outstanding debt for the Village and Towns as of 12-31-08.
Appendix D: A description of the Village of Albion Water System.3
Appendix E: The PowerPoint presentation CGR developed for the public
to summarize the study findings.
Appendix F: A summary of the feedback received by CGR from the public
following the public presentation in November 2008.
While this report was prepared for the Consolidation Study Grant
Committee, the Committee's role was advisory only. The Committee
transmitted its recommendation and this report to the respective Town and
Village boards for their determination on how to proceed.
2 Document title: "How the Village of Albion, Town of Albion and the Village of Gaines
Currently Provide Municipal Services and Potential Service Sharing Options for the
Future"
3 More detailed that the information presented as part of Appendix A
iii
Acknowledgements
CGR is very grateful to the members of the Consolidation Study Grant
Committee for the time and attention they devoted to this project. The 10-
member Committee included the following representatives:
Village of Albion
Kevin Sheehan, trustee
Dean Theodorakos, trustee
Richard Remley, resident
Clifford Thom, resident
Town of Albion
Judith Koehler, supervisor
Timothy Neilans, board member
Janet Navarra-Salvatore, resident
Town of Gaines
Richard DeCarlo, supervisor
Lorraine Oakley, board member
Royce Klatt, resident
John Gavenda, attorney for the Village and Town of Albion, attended all
Committee and public meetings. Kathleen Ludwick, former Village Clerk;
Gene Christopher, former Town of Albion Supervisor; and Roxanne
Muoio, Village resident, assisted with the study during the early phases.
CGR appreciates the many Village and Town staff members who took the
time to meet with us, gather data and make suggestions. We also thank
elected officials and staff members of the Towns of Murray, Carlton and
Barre, who assisted with gathering significant information for their
communities so that CGR could compile extensive information on the
overall Village of Albion Water System.
Finally, we especially thank five individuals who went above and beyond
to help ensure we received needed information. They are Linda Babcock,
Village Clerk; Dawn Allen, Director of Real Property Services for Orleans
County; Shelby Bennett of Baldwin Business Services (also known as St.
John & Baldwin); Paul Chatfield of Chatfield Engineers; and Eric
Bradshaw, Chief of the Albion Fire Department.
Staff Team
Charles Zettek Jr., Vice President and Director of Government
Management Services, directed the study. Vicki Brown, Associate
Director, served as project manager. Katherine Corley, Research Assistant,
contributed significantly to this report and played a key role on the project
team. Intern Matthew Rubenstein assisted with water and fire data
analyses for the project.
iv
TABLE OF CONTENTS
Summary ............................................................................................................... i
Table of Contents ............................................................................................... iv
Overview .............................................................................................................. 1
Approach to the Study ........................................................................................ 2
CGR Key Observations ....................................................................................... 5
Key Findings ........................................................................................................ 8
Committee Recommendation: Pursue Dissolution of the Village ................ 10
Implementation Action Steps ........................................................................... 13
Conclusion ......................................................................................................... 14
APPENDIX A: Current Municipal Service Delivery and Future Service
Sharing Options ....................................................................................................
APPENDIX B: Fund Balances 2000-2007.............................................................
APPENDIX C: Outstanding Debts As of 12-31-08 ...............................................
APPENDIX D: The Village of Albion Water System ............................................
APPENDIX E: Public Presentation .......................................................................
APPENDIX F: Survey Feedback ...........................................................................
1
OVERVIEW
The predominantly rural Towns of Albion and Gaines in Upstate New
York share a common border and a village, the Village of Albion.
Although about 80% of the Village's land area and population is in the
Town of Albion, the Village is very much part of both Towns. Half of the
Town of Albion's residents and one-third of the Town of Gaines residents
live inside Village boundaries.
Located in the heart of Orleans County, each of the three communities has
had its own government since the 1800s.4 Today these governments serve
a combined population of 12,420 residents living within 60 square miles.5
Census estimates show either flat or negative population growth for the
Village and both Towns for the years 2001-2006, and in all of the
communities there is growing concern about declining resources and
increasing costs.6
The Village and Towns agreed to work together to examine how they
could potentially reduce municipal costs, eliminate duplicate government
functions, and provide services more efficiently.
4 The Town of Gaines was formed in 1816; the Village's first act of incorporation
occurred in 1828; and the Town of Albion was founded in 1875.
5 2006 Census estimates: Town of Albion = 8,697 residents and Town of Gaines = 3,724.
The Town of Albion = 25.23 square miles and the Town of Gaines = 34.39. These
numbers incorporate the Village's 5,729 residents and nearly three square-mile area.
6 Orleans County bears the nation's highest property tax burden as a percentage of home
values, according to a December 12, 2008 report by the Tax Foundation, a nonpartisan
tax research group based in Washington, D.C. (See Tax Foundation Fiscal Fact No. 157,
New Census Data on Property Taxes on Homeowners)
The three communities have
had their own governments
since the 1800s, and jointly
serve 12,420 residents living
within 60 square miles.
2
With the Village serving as lead agency, the Village Board and Town
Boards successfully applied for a Shared Municipal Services Incentive
(SMSI) grant from New York State to fund a study to help identify viable
options for sharing services up to and including full consolidation of two
or all three municipalities. The Center for Governmental Research Inc.
(CGR) was engaged to conduct the study.
CGR's work was overseen by a 10-member Consolidation Study Grant
Committee, consisting of elected representatives and residents7 appointed
by the Village and Towns. CGR's primary objectives were to review
existing service delivery and costs; identify and evaluate viable
consolidation alternatives and consider tax and cost impacts; and overview
action steps for implementing one alternative selected by the Committee.
In December 2008 the Committee voted by a strong majority to
recommend pursuing dissolution of the Village, thereby reducing the
number of governments from three to two. Since the Committee's role was
advisory, this decision did not commit either the Village or the Towns to a
course of action. Instead the Committee's decision constituted a
recommended course of action to the elected boards of the Village and
Towns. Should the Committee's decision ultimately be supported by
elected leaders, it will result in additional steps, including development of
a Village dissolution plan and presentation of the plan for a public vote.
This report overviews the study approach; CGR's key observations and
findings; viable options that CGR, in consultation with the Committee,
identified for the future; and the action steps associated with the
Committee's recommended option. Detailed information developed by
CGR during the study appears in the Appendix.
APPROACH TO THE STUDY
CGR conducted the study in five phases:
Phase 1: Project Start-up and Initial Public Engagement
Phase 2: Primary Data Collection and Analysis of Current Operations
Phase 3: Identification of Options for the Future
Phase 4: Public Assessment of the Options for the Future
Phase 5: Draft and Final Reports
7 For Committee members, see Acknowledgements, page ii
Committee members
voted by a strong
majority to
recommend pursuing
dissolving the Village,
thereby reducing the
number of
governments from
three to two.
3
After a project startup discussion with the Committee, CGR presented an
overview of the project at an October 2007 public meeting. The meeting
gave residents and taxpayers an opportunity to tell CGR which services
and functions they need and expect, and to discuss ideas about the best
ways to provide them. CGR pointed out that the study would cover all
municipal functions but be grouped, per the communities' contract with
the state, into six areas:
Streets and Public Facilities
Water and Sewer
Police and Fire
Recreational Facilities and Services
General Government (e.g., elected leaders, clerks, justice courts)
Planning, Zoning and Code Enforcement
In the first half of 2008, CGR made numerous site visits to the Village and
Towns to interview key operational staff and stakeholders, tour
operational sites, and review budget, personnel and other operating
records. We collected relevant municipal, county, state and census data,
and conducted substantial off-site research and analysis.
While researching current operations, CGR learned that no one in the three
communities had sufficient information about water for CGR to describe
accurately the overall Village of Albion Water System. The system serves
not only the three communities but also all of the neighboring Towns of
Carlton and Barre and portions of the Town of Murray. In addition,
Committee members had particular concerns about fire service even
though it is already a shared service provided by the Village and Towns of
Albion and Gaines. Committee members asked CGR to help them gain an
understanding of their communities' fire service status, since there may be
a greater need for the Village and two Towns to provide financial support
in the future, especially given that the all-volunteer department has a
dwindling number of active volunteers.
The water component of the study took the most significant time of any
aspect of the study. Since service sharing or consolidation could
potentially impact all towns served by Village water, CGR created a
special survey instrument for all municipalities involved in the system. We
also conducted site visits, talked to the Village's consulting engineer, and
met with representatives of the Village of Albion and Towns of Albion,
Gaines, Carlton, Barre and Murray. As a result, CGR was able to provide
the Committee, by fall 2008, with the first-ever document to include
information on the overall water system and how it is administered.
4
At the same time, the Village Fire Department, whose boundaries coincide
with the boundaries of the Towns of Albion and Gaines, worked with
CGR to gather and compile relevant departmental data. CGR subsequently
conducted an in-house analysis that confirmed the Village and Towns
need to take steps to develop a coordinated plan to address emerging
critical needs of the Fire Department.
After completing the data collection and analysis of current operations
phase of the study (Phase 2), CGR created four key documents that appear
in the Appendix. Together they provide not only a baseline of current
operations, but also key information on sharing services without fully
consolidating governments. These documents are:
Appendix A: How the Village of Albion, Town of Albion and the Village
of Gaines Currently Provide Municipal Services and Potential Service
Sharing Options for the Future
Appendix B: Fund Balances for the Town and Village of Albion and Town
of Gaines (2000-2007)
Appendix C: Outstanding Debt as of 12-31-08 (by municipality)
Appendix D: The Village of Albion Water System - Overview of What
Exists
CGR used the overall quantitative and qualitative information we gathered
as the basis for identifying viable options for the future. In Phase 3 of the
study, CGR, in consultation with the Committee, identified three options
to present to the public as alternatives to the status quo:
Option 1: Service sharing in specific areas involving either the Village
and Town of Albion or all three municipalities
Option 2: Dissolution of the Village and merger with the Town of Albion
Option 3: Full consolidation of the Village and two Towns
Public assessment of the identified options (Phase 4) began when CGR
presented a report summary at an October 2008 joint session of the Village
and Town boards. The following month CGR delivered a PowerPoint
presentation on the study to the public (see Appendix E). Subsequently,
CGR delivered the PowerPoint in electronic format to the Village and
Towns to publicize, and also posted it on the CGR website. We developed
a community feedback form and invited residents to return it directly to
CGR over the Internet or by mail or email. We summarized the comments
received by CGR during the comment period (see Appendix F). Finally
CGR attended two Committee sessions where members weighed the pros
and cons of the different options before voting to recommend Option 2.
5
CGR notes that in their final discussion, Committee members left open the
following question: Should dissolving the Village result in consolidating
the entire Village with the Town of Albion or in having sections of the
Village revert to their respective Town (i.e., the section of the Village
within the Town of Gaines remaining with the Town of Gaines). The
Committee agreed that this question should be addressed and resolved if
and when a dissolution plan is developed.
This report constitutes the final phase of the study (Phase 5).
CGR KEY OBSERVATIONS
The full report includes numerous observations by CGR, but we highlight
below those most important for the three municipalities to consider when
weighing status quo, shared services or consolidation for the future.
For some critical services the existing governmental structure hampers
efficient operation today and effective planning for the future. The
major services affected are water, sewer and fire services:
Water - Until CGR completed its research in fall 2008, no one
understood that the Village of Albion Water System is a $3.5
million operation.8 It is not viewed, nor managed, as a regional
system and asset, but instead as six different systems. For example,
future capital needs of the Village-managed sections of the system
and any associated impact on Towns relying on Village water are
currently unknown, because the overall system is being managed in
pieces. This scenario not only builds in inefficiencies (e.g., seven
managers overseeing separate parts of the system, six separate
billing operations, multiple software programs for water billing) but
also results in little coordinated planning for the future. Specifically
with regard to the Village and Towns of Albion and Gaines, CGR
found there is potential for increasing efficiency in the area of water
transmission, distribution and maintenance, but it would require a
designated crew serving the Village and both Towns rather than each
community having personnel responsible for these areas. There is
also potential for streamlining and improving the water billing
process for the three governments, which currently involves eight
employees on a part-time basis to send out 3,400 quarterly invoices
and use of some outside bookkeeping support. Considering the
importance of water revenues to the three communities (see
8 Based on 2007 revenues and expenditures for the Village and the Towns of Albion,
Gaines, Carlton, Barre and Murray
For some critical services,
the existing governmental
structure hampers efficient
operations and effective
planning for the future.
6
Appendix A), it would be prudent to have consolidated billing with
concentrated oversight of the billing process.
Sewer - According to elected leaders of the Town of Albion, the
availability of sewer service from the Village of Albion is critical to
potential future growth in the Town. Until this study, however, there
was apparently little widespread understanding that the Village
sewer system is at 91% capacity and can't handle peak flows, and
that the Village code enforcement operation isn't staffed to get users
to address violations (such as illegal connections) that are costing
the Village money and keeping it, in part, from increasing current
capacity (see Appendix A). CGR believes the current government
structure hampers appropriate planning on how best to provide
future sewer services for the greater Albion community (Village and
Town).
Fire Service - CGR found the current all-volunteer fire services
model can't meet future needs. Analysis shows the 12,400 residents
living in the 60-square mile area encompassed by the Village and
Towns are currently dependent on a dedicated core of 15-18
volunteer fire department personnel. Staffing has been a concern for
the Fire Department for about two years, and CGR data analysis
confirmed that the Fire Chief has valid concerns about the
department's future ability to field enough drivers and other
appropriate staff for all alarm calls and emergencies. CGR believes
the current government structure, whereby the fire service is
considered a department of the Village, with the Towns providing
financial support, has so far hampered coordinated planning for
future fire service needs.
For some key services, Village taxpayers pay a disproportionate share of
expenses. We cite two major examples:
Cemeteries - The three governments collectively spend about a
quarter million dollars annually to maintain cemeteries, while the
revenues to offset cemetery expenses total only about $100,000.
However, all but a tiny fraction of the net cost is funded by Village
taxpayers, since the Towns operate only very small, relatively
inactive cemeteries and do not contribute to the maintenance of the
Village-owned Mt. Albion Cemetery. Put another way, Village
residents bear the burden of maintaining the only significant
cemetery facility serving families in the Village and Towns.
For some key services,
Village residents pay a
disproportionate share of
expenses.
7
Highway/DPW - Taking into account only street- and highwayrelated
costs,9 the total spent by the municipalities for three
Highway/DPW superintendents, including benefits, is more than
$188,800. But the Towns levy their costs as Town-wide expenses,
which means that, across the Village, taxpayer funds are being
expended to support three highway/DPW superintendents. Each
Village taxpayer actually supports two of the three superintendents -
one for the Village and one for the Town of residence. In addition,
the only Highway Department personnel and contractual
expenditures that aren't billed Townwide in the Towns are those for
street maintenance. As a result, there is a disproportionate tax burden
on Village residents for some Town highway services such as brush
and weeds and machinery as well as for the cost of superintendents.
Taking a shared services approach limits the long-term potential for
providing more efficient and effective services.
Shared Services - CGR found there are relatively few services that
the municipalities can share on a "stand-alone" basis (i.e., through
shared service agreements) and none would generate significant cost
savings. As the chart below shows, CGR estimated that a shared
clerk/finance function between all three governments could save less
than $30,000 annually, while a combined Town of Albion and Town
of Gaines justice court would yield less than $10,000 savings
annually.
Potential Savings Through Shared Services
Service Area Albion Village &
Town
All 3 Municipalities
Streets/Highway $144,042 $229,429
Water $37,093 $68,218
Clerk/Finance $28,950* $28,950*
Justice Courts $0 $9,900*
$210,085 $336,497
9 Therefore, excluding costs for any water- or sewer-related duties
Opting for shared services,
rather than consolidation
limits the potential to
provide more efficient,
effective service over the
long term.
8
*
Items marked with an asterisk could be achieved on a stand-alone
basis (i.e., through a shared services agreement)while other potential
savings are interdependent (i.e., linked to having shared services in
more than one area)
It is possible to save more by consolidating in areas where there are
significant expenditures (e.g., streets/highways) but not without also
restructuring other "interdependent" services (e.g., water and sewer)
because the same personnel are involved in providing all of these
services. Interdependent services of this nature are complex to
structure and could not be achieved simply through a shared service
agreement.
Consolidation - The state is currently offering incentives to
municipalities - in the form of more state unrestricted aid (Aid and
Incentives to Municipalities or AIM) - if they consolidate
governments. These incentives do not apply for shared services. For
options involving dissolution/consolidation, the AIM incentives are
the basis for ongoing funding streams.
KEY FINDINGS
This report includes many findings, but the most important are highlighted
below:
Consolidation Cost Savings - CGR estimates that if the Village of
Albion merges with the Town of Albion, taxpayers should save at least
$535,000 (an 18% property tax reduction). If the Town of Gaines also
consolidated with them, taxpayer savings should be at least $736,000 (a
22% property tax reduction). CGR determined these overall taxpayer cost
savings based primarily on 2007 fiscal year data for the Village and
Towns and the following:
Cost savings due to efficiencies10
New revenue due to AIM incentives from the state
Loss of Gross Utilities Tax revenues (which occurs as a result of
dissolving a Village)11
These savings estimates were intentionally conservative. For example, no
savings were projected from eliminating duplicate boards and legal
10 $210,000 for the Town and Village of Albion (about 7% of a combined tax levy of
$2.9 million), and $336,000 for the three municipalities (about 10% of a combined tax
levy of $3.4 million). For details on efficiency savings, see Appendix A.
11 Village Gross Utilities Tax = $113,726 in fiscal year 2007
If the Village and Town of
Albion consolidate, overall
taxpayer savings will be at
least 18%, and if all three
municipalities consolidate,
overall taxpayer savings will
be at least 22%.
9
services because it was assumed that these savings would be offset by the
additional funding needed to pay staff for taking on additional
responsibilities (e.g., one superintendent instead of two overseeing streets
and highways, the possible need to have a new administrator).12
Village Police - In New York State, a village police force is impacted
when a village is dissolved and consolidated with a town. As part of the
study, CGR discussed various police coverage alternatives with the
Committee. These alternatives include a) having the police provide
coverage to a consolidated community; b) conducting a separate study to
examine other options for the future, such as having the Sheriff provide
coverage in the current Village; or c) requesting approval from the State
Legislature for a special police district for the current Village, which
would hold services and taxes harmless for everyone. The outcome of
these discussions was for CGR to assume a special police district when
computing tax and cost implications for a recommended option.
Portion of the Village in Gaines - When discussing viable
consolidation options for the future with the Committee, CGR outlined
what might happen with the portion of the Village that is located in the
Town of Gaines if the Committee ultimately recommended
consolidating just the Village and Town of Albion. CGR believes it
makes sense to keep the Village whole, for purposes of managing
services that are currently designed to serve the entire Village, such as
sewer and police. Carving out a portion of the Village would change
service needs and requirements. To keep the Village whole, CGR
assumed that if the Village dissolved, the Town of Albion likely would
annex the Gaines portion of the Village. At the public presentation in
October 2008, CGR noted one way to offset the Town of Gaines loss of
Town-wide tax levy collected from Village taxpayers13 could be an
inter-municipal agreement to share Village and Town of Albion
consolidation cost savings in a way that Gaines could be held harmless.
It is, however, possible that the Gaines portion of the Village could
remain in the Town of Gaines. Determining the details of either
approach would be part of a dissolution planning process that would
lead to a public vote (see below, Implementation Action Steps).
12 Per Committee direction to CGR
13 In 2007, this amounted to $93,976, or about 22% of the Gaines Town-wide tax levy
10
COMMITTEE RECOMMENDATION:
PURSUE DISSOLUTION OF THE
VILLAGE
Based on the extensive quantitative and qualitative information gathered
during the study, the Committee voted on December 15, 2008, to
recommend pursuing dissolving the Village. At the time this report was
written, the Village of Albion Board of Trustees was studying the issue.
The Town of Gaines Board was awaiting the Village's decision. The
Albion Town Board had unanimously endorsed the Committee's
recommendation
Below, CGR provides answers to two key questions we were asked either
during the study or by Committee members preparing to discuss in detail
with elected leaders the Committee's recommendation. The answers are
based on experiences in other communities that have studied
consolidation. However, they are not definitive answers since many of the
answers would ultimately be addressed by a dissolution plan committee,
which would be formed if the Village chooses to move forward with a
dissolution process.
Answer: Existing debt incurred by a community's taxpayers would be
paid off by those taxpayers after consolidation. Fund balances could be
used to pay off debt or for other capital needs based on agreements by
the affected parties. Thus, current Village debt would be paid off by
current Village taxpayers, and would not transfer to anyone in the
Towns outside the Village.
Answer: Recognizing the huge fiscal difficulties confronting New York
State, Committee members decided the prudent thing to do was to look
at cost savings and tax shifts under dissolution and consolidation
independent of state AIM incentives.14 The committee asked CGR:
What would the impact of dissolution and consolidation be if we
ignored the impact of AIM incentives, and didn't assume they would be
available to the consolidated community?
On the following pages, CGR provides two tables to answer this question.
Table 1 shows tax rates under the current government structure, with the
14 The Town and Village of Albion are slated to receive a total of about $93,000 in 2008-
09 in AIM funding from the state, but with projected AIM incentive money that amount
could jump to about $532,000 in the first year of consolidation, under current and
proposed state budgets, with future annual percentage increases based on the higher total.
Question: What happens to
debt and fund balances
when a village dissolves and
consolidates with a town?
Question: What is the
impact on tax rates
assuming no new AIM
money from the state for
dissolution/consolidation?
11
final lines showing what Village taxpayers living in each Town currently
pay per $1,000 taxable assessed valuation. Table 2 shows projected tax
rates for the same year under a consolidated model for the Village and
Town of Albion, based on current assumptions discussed by the
Committee and CGR.
TABLE 1
Municipality Tax Rate*
Town of Albion $2.01
Town of Albion $1.18
$3.19
Town of Albion $0.00
Town of Albion $1.49
$1.49
Town of Gaines $2.66
Town of Gaines $1.52
$4.19
Town of Gaines $0.35
Town of Gaines $0.67
$1.03
Village of Albion $15.18
TOTAL Paid by Village Taxpayers in Town of Albion $18.37
TOTAL Paid by Village Taxpayers in Town of Gaines $19.37
Village + Townwide Rate
Tax Rate for TOV Residents
General (A Fund)
Village + Townwide Rate
Hwy TOV (DB Fund)
General TOV (B Fund)
Hwy TOV (DB Fund)
Hwy Townwide (DA Fund)
Tax Rate for All Town Residents
General Townwide (A Fund)
General Townwide (A Fund)
Hwy Townwide (DA Fund)
Tax Rate for TOV Residents
2008 Tax Rates With Current Government Structure
Fund
Tax Rate for All Town Residents
General TOV (B Fund)*
12
NOTE: The table below is included only to project potential tax rates for a
consolidated Village and Town of Albion without factoring in any new
revenues from state consolidation incentives. Actual tax rates would not
be known until after (or if) a detailed dissolution plan, describing what
will actually happen in a consolidated entity, is developed. Further, these
assumptions and rates would have to be recalculated if the portion of the
Village which is in Gaines ultimately stays within the Town of Gaines.
TABLE 2
Albion (T) Albion (V)** TOTAL
2008 General Tax Levy (Townwide for A, G) $396,083 $2,183,242 $2,579,325
2008 Highway Townwide Tax Levy $231,225 $0 $231,225
2008 TOV General Tax Levy $0 $0 $0
2008 TOV Highway Tax Levy $116,450 $0 $116,450
TOTAL 2008 Levy $2,927,000
Minus Total Consolidation Savings (w/o new AIM) $210,000
Plus Loss of Gross Utilities Receipts Tax $113,726 $113,726
Minus Village Street Lighting (becomes special dist.) $67,500 $67,500
Minus Village Street Cleaning (becomes special dist.)*** $38,835 $38,835
New Consolidated Entity Tax Levy $2,724,391
2007 Taxable Assessed Valuation $196,665,986 included in town $196,665,986
New Consolidated Entity Tax Rate $13.85
Minus Village Police Expenses (becomes special district) $822,682 $822,682
Minus Village Debt Service (stays with former Village residents) $129,835 $129,835
Tax levy for former Albion TOV residents $1,771,874
Tax rate for former Albion TOV residents $9.01
Village Police Spec. Dist Tax Rate $5.72
Village Street Lighting Spec. Dist. Tax Rate $67,500 $0.47
Village Street Cleaning Spec. Dist. Tax Rate $38,835 $0.27
Village Debt Service Tax Rate $0.90
Village Total Tax rate (Town rate plus Police & Debt Service) $16.37
*Tax rates are per $1000 of Taxable Assessed Valuation
**Figures from 2008-09 Adopted Budget
***Normally would pull out sidewalk expenses as well, but Village had none in 08-09 FY
Assumes No New AIM & Includes Loss of Gross Utilities Tax
Projected Tax Rates* for Town and Village of Albion Combined
13
IMPLEMENTATION ACTION STEPS
To implement the Committee's recommended option, the following steps
would need to occur.
1. The Village board takes action to initiate the Village dissolution
process.15
2. The Village board appoints a committee to prepare a dissolution
plan. The study committee must include at least two
representatives from the Town of Albion who reside outside the
Village. Because part of the Village is in the Town of Gaines, the
study committee must also include at least two representatives
from Gaines who reside outside the Village boundaries.
3. The plan must address the disposition of the property of the
Village; payment of outstanding obligations and the levy and
collection of the necessary taxes and assessments; the transfer or
elimination of public employees; any agreements entered into with
the Towns in order to carry out the plan for dissolution; whether
any local laws, ordinances or rules and regulations of the Village in
effect on the date of the dissolution of the Village shall remain in
effect for a period of time other than as provided by state law; the
continuation of Village functions or services by the Town(s); a
fiscal analysis of the effect of dissolution on the Village and the
area of the Towns outside the Village; and any other matters
desirable or necessary to carry out the dissolution (e.g., such as
how fire protection will be provided).
4. After a Village board adopts a dissolution plan, the board
constructs a proposition, which contains the question of dissolution
to be put before Village voters.
5. The plan and proposition must be published in the official
newspaper, and both the study committee and the Village board
must each hold at least one public hearing.
6. At a regular or special election, voters in the Village vote on the
proposition and plan.
7. If the plan calls for the Town of Albion to annex the portion of the
Village in the Town of Gaines, the annexation could not occur
15 New York law also allows for the dissolution process to be initiated by petition of
Village residents.
14
without the consent of the people in the territory to be annexed and
the consent of the governing boards of both Towns.
8. If the proposition and plan to dissolve is approved by a majority
vote, the Village would formally dissolve December 31 of the year
following the election. The period between the vote and the actual
dissolution would allow for an orderly transition to the
consolidated entity.
CONCLUSION
The Consolidation Study Grant Committee concluded there are many
reasons to consider dissolving the Village, thereby reducing the number of
governments from three to two. The Committee's recommendation was
not a vote to dissolve, but a recommendation that steps be taken by elected
leaders to develop a plan to present to the public, which can then vote on
whether or not to dissolve the Village.
APPENDIX A: CURRENT MUNICIPAL
SERVICE DELIVERY AND FUTURE
SERVICE SHARING OPTIONS
Appendix A
How the Village of Albion, Town of Albion and the Village of Gaines
Currently Provide Municipal Services
and
Potential Service Sharing Options for the Future
Including Services Provided, Personnel, Resources,
Revenues, Costs and Summary of Key Findings
Prepared for the Consolidation Study Grant Committee
September 3, 2008
This document was prepared with funds provided by the New York State Department of
State under the Shared Municipal Services Incentive Grant Program.
Appendix A 2
This report covers 6 areas:
1. Streets and Public Facilities ...............................................................3
2. Water and Sewer............................................................................9
3. Police and Fire...............................................................................16
4. Recreational Facilities and Services......................................................20
5. General Government (elected leaders, clerks, justice courts, assessment, other)..20
6. Planning, Zoning and Code Enforcement...............................................24
Notes on Fiscal Year 2007 financial data in the report:
- Financial information is based primarily on 2007 information (calendar year for the
Towns, and the year ended May 31, 2007 for the Village) reported to the NYS Office of
the State Comptroller (OSC).
- Additional information was provided by the Village and both Towns.
- Some fiscal information for the Towns, including actual employee benefits costs for
2007, was provided by the Towns' fiscal consultant (St. John & Baldwin).
- For the Village, employee benefit costs are Village estimates, except for water, which is
actual data provided by the Village, and for sewer, which is per OSC reporting.
- Additional data also provided by others interviewed by CGR for this study.
Appendix A 3
Area 1: Streets and Public Facilities
Note: Includes Village DPW and Mt Albion Cemetery and both Town Highway Departments,
but not information or data for water or sewer services provided by these departments.
Key Findings:
1. To maintain 124.5 miles of roads, one large cemetery and a number of small ones, 10
buildings, municipal equipment, including major fire apparatus and Village police vehicles,
involves 39 major pieces of equipment and a total of 33 individuals, including:
3 DPW/highway superintendents
17 other fulltime DPW/highway staff (some also work in water/sewer area)
7 part-time DPW/highway seasonal workers
1 part-time cleaner in Village DPW
1 cemetery superintendent
1 other fulltime staff member at Mt. Albion Cemetery
4 part-time seasonal workers at Mt. Albion Cemetery
2. If all costs, including benefits, are factored in, the 3 governments spent more than $2.1
million on this area, or about 25% of all expenditures for the Village and both Towns,
making this an important area to focus on for reducing costs and/or improving efficiency.
The 3 Municipalities Combined
Highway & Cemetery as % of FY 2007 Expenses
All Other
Expenses
$6,190,925
74.5%
Cemetery
$240,695
2.9%
Highway
$1,874,758
22.6%
Appendix A 4
Town of Albion
Highway & Cemetery as % of FY 2007 Expenses
Highway
$617,783
34.9%
Cemetery
$1,911
0.1%
All Other
Expenses
$1,152,724
65.0%
Town of Gaines
Highway & Cemetery as % of FY 2007 Expenses
All Other
Expenses
$854,806
63.0% Cemetery
$7,663
0.6%
Highway
$493,862
36.4%
Village of Albion
Highway & Cemetery as % of FY 2007 Expenses
Highway
$763,113
14.1%
Cemetery
$231,121
4.3%
All Other
Expenses
$4,403,267
81.6%
Appendix A 5
3. Just to maintain cemeteries, excluding benefit costs for personnel, the 3 governments spent
about $192,000, with 95% spent by the Village. Adding in the Village's estimated benefits
costs ($34,000), the cemeteries are costing more than $226,000 to maintain. Cemeteryrelated
revenues to offset this cost were less than half this total ($100,200).
4. Costs for Highway/DPW superintendents are levied as Town-wide expenses by both Albion
(T) and Gaines, thus, Village residents are, in effect, paying for 3 superintendents. The total
cost, excluding benefits, is about $122,000. However, based on information provided to
CGR, with benefits included, the cost is more than $188,800.
5. The only Highway Department personnel and contractual expenditures that aren't billed
Townwide in the Towns are those related to street maintenance. As a result, there can be a
disproportionate tax burden on Village residents for some Town highway services.
Examples: costs for brush and weeds and machinery.
6. At the end of 2007, the Town of Albion had a very healthy highway fund balance of nearly
$495,000, and the Town of Gaines a strong balance of more than $280,000. Projections for
12/31/08 show no outstanding highway debts for either the Village or Town of Albion, and
only one outstanding debt ($21,600 for a truck) for the Town of Gaines.
Albion (T) fund balance = $291,540 (Townwide) + $203,297 (TOV) = $494,837
(Note: planned purchase of dump truck for $170,000 in 2008 will reduce fund total).
Gaines fund balance = $230,258 (Townwide) + $51,224 (TOV) = $281,482.
What Are the Opportunities to Reduce Costs and/or Increase Efficiency?
OPTION A: Town of Albion contracts with the Village to provide Highway/Cemetery
Services (inter-municipal agreement)
Background Information:
- Nearly 79% of the population of the Village resides in the Town of Albion, per
2006 Census estimates.
- 4/5 of the Village's nearly 3 square miles of land are in the Town of Albion.
- 78.5 road miles combined (Village's 37.7 miles = nearly half of total)
- Cemetery personnel services (excluding benefits) for Town = $1,900; for the
Village = $149,857
Appendix A 6
Streets and Public Facilities
Village DPW Village Cemetery Albion (T) Highway Dept Gaines Highway Dept Total
Major services provided
Road miles - plow, sand, mow 37.66 40.88 46 124.54
Cemeteries maintain 1 large (18,000 graves) 4 small outsource mowing all 7 ( 3 acres)
Number buildings maintain 7 1 2 10
Other land maintained (e.g., parks)
39 acres land at Town hall/garage land at Town hall & garage
Personnel
Fulltime superintendent 1 1 1 1 4
Fulltime staff 12 1 3 2 18
Part-time (i.e., seasonal, (V) cleaner)
4 4 2 2 12
Major equipment -- # of pieces
0
10 wheeler truck
1 3 3 7
6 wheeler truck 3 1 4
4 ton dump truck
1 1
2 ton truck 1 1
1 ton dump truck 3 1 4
Mowing tractor 1 1 2
Lawn tractor 2 2
Compact tractor
1 1
Loader 1 1 1 3
Backhoe 2 1 1 4
Pickup truck 3 1 1 2 7
Service vehicle 3 3
2-ton dump trailer 1
Total pieces of equipment 39
NOTES
Services Provided:
Albion (T) maintains 16.55 miles, and Gaines 25 miles, for Orleans County
Albion (T) offices and garage are combined in a single building
Village buildings maintained: water plant, sewer plant, DPW, Village office, fire hall, visitor center, cemetery building
Village maintains all vehicles and major equipment owned by the Fire Dept. or Village (e.g, 9 fire apparatus, 5 police cars)
Personnel:
Fulltime DPW/Highway personnel handle water (and in the Village, also sewer) line distribution/maintenance issues
Major equipment:
Some equipment is also used for water and in the case of the Village, also sewer, distribution and maintenance needs
Village and both Towns also own their plows used for snow removal and each has own salt shed
Appendix A 7
Potential Cost Savings
- Total staffing now = 27 individuals - 3 superintendents, 16 staff members, 7
seasonal employees and 1 PT cleaner
- Potential efficiency gains with larger staff could eliminate a minimum of 1
superintendent and 1 MEO (including winter overtime)
Cost savings and tax rate reduction per $1,000 of equalized taxable
valuation would be as follows:
- Town superintendent position/benefits eliminated = $75, 810
o Tax impact is Townwide = $ .38 per $1,000
- 1 Town MEO position, OT, and benefits eliminated = $68,232
o Tax impact (assumes impact is fully Townwide) = $ .35 per
$1,000
Total Cost Reduction for Albion (T) = $144,042 with tax savings Townwide of $.73 per $1,000
Additional Potential Savings Over Time - Likely due to eliminating some pieces of equipment
(for example, are 3 backhoes needed? 2 loaders? 4 pickup trucks?)
OPTION B: Gaines also contracts with the Village to provide Highway/Cemetery Services
(inter-municipal agreement)
What currently exists:
1 FT Superintendent (unless there is a water break or water district lines to
install, most time is on highways)
2 FT staff (spend bulk of their time on highways or fix machinery, and spend
time on water as needed; minimal time on cemeteries)
2 PT seasonal workers
Maintain 46 miles of road, including 25 miles for the County
9 major pieces of equipment
Potential Cost Savings:
- Town superintendent position/benefits eliminated = $60,447
Appendix A 8
Tax impact is Townwide = $ .58 per $1,000
- Eliminate position/benefits of primary PT laborer = $17,277
Tax impact (assumes impact is Townwide) = $ .17 per $1,000
- Eliminate superintendent and outside mowing costs for cemeteries = $7,663
Tax impact (assumes impact is Townwide) = $ .07 per $1,000
Total Cost Reduction for Gaines = $85,387 with tax savings Townwide of $.82 per $1,000
Total Minimum Cost Savings if Option A + Option B = $229,429
Additional Potential Savings Over Time - Likely due to eliminating some pieces of equipment
CGR Observations/Recommendations:
1. None of the 3 municipalities track where staff members spend their time, and performance
reporting is recommended.
2. Village DPW record-keeping is paper-based. Before any services are merged, an electronic
records management system is strongly recommended. The Village, in concert with the
Towns, could apply for a NYS Archives records grant for this purpose.
3. Service sharing with either or both Towns would result in re-alignment of some duties, which
could make it possible for other areas, notably water, to become more efficient.
4. Village DPW and both Town Highway staff are represented by 3 different unions, and all of
the current contracts extend into 2010. Changes in duties would likely involve discussion
with the unions.
5. Future facility needs depend upon choices made over time re: staffing and equipment.
6. Towns highways superintendents are elected. To drop position requires a public referendum.
Appendix A 9
Area 2: Water and Sewer (addressed separately)
WATER
Appendix A 10
Key Findings:
1. The Village of Albion water system should be viewed as a regional asset, rather than as 6
separate systems.
2. It is a $3.5 million operation. (based on 2007 revenues systemwide).
3. It is essentially a break-even operation (e.g., $3.6 million in expenditures in fiscal year 2007).
4. Other system highlights:
a. 32 water districts
b. 210 miles of water lines
c. 39 individuals involved in the water system, with 10 budgeted fulltime
d. 7 managers (1 for each Town in the system and 2 in the Village)
e. 5,500 invoices (3,400 combined from Village, Albion (T) and Gaines) billed
quarterly.
f. 6 separate billing operations (and at least 4 different billing systems) and some towns
have outsourced some bookkeeping
g. The rate structure across the system is complex (i.e., 20 rates, with some overlap).
h. Water treatment plant built in 1962, and has had one major renovation in 1994 ($1
million). Future capital needs are unknown.
i. Cost to develop a capital improvement plan for Village only = $24,950 (Chatfield
Engineers, November 2007)
j. Fund balances across the system total about $1.1 million, with roughly half the total
in the Town of Albion.
k. Water debt across the system is nearly $6.6 million. Majority of debt is for Town
water districts, and district debt is repaid by users over time.
i. Remainder of debt ( $1.65 million) = outstanding balance the Village is
paying off for work on the water treatment plant and a water tank and for Rt.
98 & 31 water-related expenses
Appendix A 11
Overview of Water Revenues, Expenditures & Fund Balances for the Village and Towns of
Albion and Gaines, in Context with other Towns in the System1
1 Excluding Murray, which has 3 water sources
Village of Albion
Water Revenues and Expenditures (in $1000s)
$1,535 $1,616
$1,480 $1,518
$0
$300
$600
$900
$1,200
$1,500
$1,800
FY 2005-2006 FY 2006-2007
Total Revenues Total Expenditures
Four Towns That Are Direct Purchasers of Village Water:
Water Revenues and Expenditures (in $1000s)
$383
$291 $313
$404
$491
$562
$512
$616
$323
$375
$299 $307 $337
$417
$496
$646
$0
$100
$200
$300
$400
$500
$600
$700
FY 2006 FY 2007 FY 2006 FY 2007 FY 2006 FY 2007 FY 2006 FY 2007
Gaines Gaines Barre Barre Albion (T) Albion (T) Carlton* Carlton
Revenues Expenses
Appendix A 12
Water Fund Balances at End of
Most Recent Fiscal Years
For Municipalities Only Using Albion Water
FY 2006 FY 2007
Albion (V) $117,000 $135,864
Gaines $191,861 $213,939
Barre $33,331 $46,128
Albion (T) $434,626 $508,790
Carlton $248,741 $218,749
TOTAL $1,025,559 $1,123,470
Note: Unaudited report for the Village for the fiscal year ended
5-31-2008 shows Village water fund balance at about $55,000.
What Opportunity Exists to Reduce Costs and/or Increase Efficiency?
Note: as part of this study CGR met with representative of all of the Towns involved in the
system, gathered extensive data, and provided the Albion system's recently formed "Water
Committee" with its first-ever comprehensive system report. The committee is in the very early
stages of discussing report findings. Regardless of the outcome of the discussions, CGR
recommends the following opportunity be considered by the Village and both Towns.
OPTION: Gaines and Albion (T) contract with the Village to provide water services
currently provided by their Highway Departments. (inter-municipal agreement)
Potential Cost Savings:
- Actual personnel costs, including benefits, for the Village encompass the water
treatment plant, DPW, and the clerk function.
Total personnel costs for the Village in fiscal year 2007 = $773,032, including
nearly $211,000 for benefits.
- Towns personnel costs for water that could be saved, including benefits:
Water administration:
- Albion (T) = $17,036
- Gaines = $ 17,863
Transmission/distribution/maintenance:
- Albion (T) = $13,070
- Gaines = $ .00
Clerks:
- Albion (T) = $6,987
- Gaines = $13,262
Appendix A 13
Cost savings Albion (T) = $37,093, or tax savings in TOV of $ .47 per $1,000.
Cost savings for Gaines = $31,125, or tax savings TOV of $ .38 per $1,000.
Note: the tax savings would be apportioned to specific water districts, thus tax savings
above are only shown as a general guideline of the impact on the communities.
CGR Observations/Recommendations:
1. If one or both options previously described for Streets and Public Facilities are adopted, there
is great potential for increasing efficiency in the water area for costs related to
transmission/distribution/maintenance by having a designated DPW crew serving the Village
and both Towns.
2. The Village and both towns have or will soon install "radio read" systems for water meter
reading, reducing what has been a multiple-day process each quarter to a few hours.
3. The Village's radio read system includes "leak detection" capability, which will eliminate a
2-week process with one that takes about 30 minutes. The Village estimates there is potential
to save $100,000/year in unaccounted water.
4. There is great potential for streamlining and improving the water billing process, and
reducing overall costs involved with sending out 3,400 quarterly invoices. Based on the way
water billing is budgeted, there are now 8 individuals involved on a PT basis, plus some
bookkeeping is outsourced. Considering the importance of water revenues, it is wise to
consider consolidated billing with concentrated oversight of the billing process.
5. An electronic record keeping system needs to be put in place in Village DPW if service
sharing is to occur. The current paper-based system would be inadequate.
6. A rate study for the water system is strongly recommended.
7. To prepare for future needs, a study to develop a capital improvement plan is recommended.
Appendix A 14
SEWER
System consists of: 24 miles of pipe; 625 manholes; 5 lift stations; Pollution Control Plant
("treatment plant"). Village sewer staff = 3.5 FTE at treatment plant and 3.6 FTE in DPW.
Sewer Rates, Users, Debt and 2007 Fund Balance
Location Rate per 1,000 gal. water usage Users Debt**
"07 fund
balance
Village $2.86 2,209
$1.39
million $664,617
Albion (T)* $3.75 48 $515,000 $31,295
Correctional
facility* $3.75
2
prisons NA NA
*Village provides service
** Village - with balance on interest debt = more than $1.5M,
and debt is to be fully retired in April 2022.
Key finding - there are 6 significant issues:
1. Village is at 91% of capacity:
- Capacity: $2.3 million gallons per day
- Average per day: $2.1 million gallons
2. Village has been under a state DEC consent order since November 2003 because can't handle
peak flows - results in discharge of raw sewage into Sandy Creek
- Bypass occurrences (discharge of raw sewage): 2005 (24); 2006 (22); 2007 (6); 2008
(Jan-June) (4). Occurrence is length of time problem exists (i.e., a 3-day rain = 1
occurrence).
- Total amount bypassed treatment plant in 3.5 years = 56.55 million gallons:
2005 - 20.25 million gallons
2006 - 21.97 million gallons
2007 - 11.34 million gallons
2008 - 2.99 million gallons
Notes: a) recent improvement due to aggressive wet weather plan; b) there are several
places other than the Village impacted by discharge before it reaches Lake Ontario -
portions of the Towns of Gaines, Murray and Kendall.
3. Village has not made sewer system an urgent priority. Sewer capacity could be increased if
Village could successfully deal with problems due to infiltration and inflow problems ("i and
i ") linked to issues such as cracks in sewer lines, illegal connections or floor drains to
sanitary, broken or cracked manholes, open pipe joints, etc.
Appendix A 15
- Problems are in both the private and public system - work to identify problems done
by Village DPW and Chatfield Engineers (engineering firm reports completed May
2006)
o Addressing homeowner violations (such as illegal connections) requires
focused effort by code enforcement officer, and code enforcement area in the
Village has been hampered by turnover and poor record keeping. Yet, getting
homeowners to solve their own i and i problems will require, as one trustee
put it , "some arm twisting" by the code enforcement officer.
o Addressing public issues in sewer system requires major investment of money
and more study (see below).
4. The "i and i" problems result in a continuing cost to Village sewer users. The 2006 ballpark
estimate by Chatfield Engineers: to get the additional flow to the treatment plant and treat it
= $636.50/day, or $232,322 a year.
5. The sewer system has an aging infrastructure and for decades repair had been only on "as
needed" basis
- Treatment Plant will be 30 years old in January 2009 and without structural
improvements would reach its useful life in 8-13 years
o Structural integrity of tanks has deteriorated over time - no engineering
design yet authorized to address the identified problems.
o Process and electrical equipment needs have not yet been evaluated.
- Rest of the system built over the past 100 years, with much of it dating to the 1930s -
and there is a need to address not only immediate critical problems, but other rehab
needs over next 10 years.
6. Costs just for initial, critically needed work are high - $5.1 million to repair cracked tanks
and bowed walls at the plant and fix the most severe problems with the collection system.
- Village is applying for grants/loans but amounts that might be available (and loan
rate) are not yet known. (Note: if not get any monies, Village will bond the full
$5.1 million in 2009.)
- Some capital needs at the plant still need to be evaluated and estimates developed.
- Continuing, annual on-going replacement of sewer line in poor condition, over
multi-year period, needs to be budgeted for and will be expensive.
CGR Observation:
- Sewer is Village-only service. There is no potential savings via service sharing.
Appendix A 16
Area 3: Police and Fire (addressed separately)
POLICE
- Village-only function; both Towns served by County Sheriff and NYS Police
- 12 FT staff = Chief, 3 sergeants (one does clerical), 8 officers (one assigned to Orleans
County Drug Task Force - partial County reimbursement began 1/1/08)
- 1 PT crossing guard
- Coverage is 24/7, with 2 officers on all 3 shifts (6 am - 2 pm; 2-10 pm; 10 pm. - 6 am);
no staffing study done in past 17 years
- Total police calls (average for 2005-2007) = 5,888, with top 10 types of calls as follows:
11% - vehicle related
9% - disturbance
5% (each) - larceny, bank escort, juvenile complaint
4% (each) - assistance, harassment
3% (each) - noise, accidents, aid
- Vehicles = 4 + Chief's car; and also have foot patrol with officers each walking 1 hour
per shift; have 2 officers trained for bike patrol
- Dispatch is by Orleans County 911 (+ average 4-5 walk-ins a day)
- An officer position, including benefits = approximately $72,000, per Chief
- Orleans County Sheriff has 23 officers, per Chief
Key Findings
- Police is a key expense driver in the Village - 20% of total Village expenses
- Revenues to offset cost = police fees ($268 in FY 2007)
Appendix A 17
Note: Police retirement ($114,511) = actual; other benefit costs based on Village estimates
Potential Cost Savings is Unknown:
- Since the County is not part of this study, CGR could not assess what cost savings could
be achieved if a different police model existed in the Village
- Separate study could be undertaken to examine options for the future, which could range
from status quo to Sheriff providing partial or full coverage.
Two full consolidation models to explore: a) Village contracts with Sheriff and pays
County for specified level of law enforcement or b)Village PD is dissolved and
Sheriff is responsible for law enforcement in the Village. Either option requires vote.
Police as % of FY 2007 Village Expenses
Police
$1,090,046
20%
All Other
Village
Expenses
$4,307,455
80%
Village of Albion
FY 2007 Police Expenses Breakdown
Benefits
$263,874
24%
Personnel
$747,650
68%
Equipment &
Capital Outlay
$16,497
2%
Contractual
$62,025
6%
Appendix A 18
FIRE
The all-volunteer Albion Fire Department (FD), which has an emergency rescue arm, is a Village
department. The fire district's boundaries are the same as for the Towns of Albion and Gaines.
The FD does not transport for EMS but works closely with the not-for-profit Central Orleans
Volunteer Ambulance. When COVA's crew, which answers about 1,800 EMS calls annually, is
out on a call and another alarm (or alarms) comes in, the FD is "toned out" to respond.
Both Towns contract with the Village for fire services, contribute to the department's operating
budget, and along with the Village pay the cost of fire insurance. Dispatch is by Orleans County
911. The Village owns all fire apparatus except for the EMS vehicle owned by the department
and the Chief's command vehicle, and also owns the fire hall and pays for any major or
structural problems to the building.
The FD serves a population of 12,420 residents (2006 Census estimate) living in a 60 square
mile area. FD has 9 key pieces of apparatus.
Key Findings:
1. There are no consolidation issues to address with the FD, since it already jointly funded.
2. The concerns about the FD are about future staffing and the viability of the all-volunteer
model, and thus the potential for added costs for fire services, which will impact the Village
and both Towns.
3. The operating budget for the FD has been essentially flat for the 7-year period ending May
31, 2008, and ranged between about $65,000 and $79,000.2 Typically the department's own
fundraising efforts bring in about $8,000 - $10,000 a year additional.
2 The information below was added to the final report by CGR, to provide more detail on the fire department budget.
In fiscal year 2007, the three municipalities spent $179,302 for fire-related expenses, not
including insurance costs and the Village's payments toward a bond for a recently purchased fire
truck. Of this total, $84,422 was provided by the Town of Albion, $27,776 by the Town of
Gaines and $67,104 by the Village of Albion. The $179,302 went to department operating
expenses, plus fire gear, hoses, pagers, radios, repairs on equipment, batteries, building
maintenance, cleaning supplies, electricity, fire police supplies, EMS supplies, gasoline,
physicals, schools, training, telephone/pager, etc. Any work that needs to be done on fire
vehicles is done by the Village mechanic in the Department of Public Works with the cost
covered separately by the Village. As of 12-31-08 the Village owed $485,901 for the recently
purchased fire truck. Fire insurance costs are paid by the state. In 2007, the state sent the
following amounts to the municipalities to cover the cost of fire insurance. Both Towns sent the
amount they received to the Village, which wrote one check to cover the $13,486.55 cost of fire
insurance for the year.
Village of Albion $ 8,938.48
Town of Albion $ 3,081.99
Town of Gaines $ 1,466.08
Total $13,486.55
Appendix A 19
4. CGR interviews and analysis of available data indicate:
- The number of fire alarm calls has not changed since at least 2001, and 250 fire
calls a year is typical.
- Over the same years, EMS alarm calls more than tripled, from 107 in 2001 to 354
for calendar year 2007.
- The total number of alarms in 2007 was 670, when the limited number of calls for
motor vehicle accidents and mutual aid are factored in. Alarm calls in the first
half of 2008 are following the same trend line (339 total alarms, Jan. - June).
- Staffing problems have been a concern for the FD for about 2 years. There is
growing concern that the department may not be able to field a crew in an
emergency. Of the volunteers on the roster (77 in 2007 and 76 in the first half of
2008), CGR found:
There is a dedicated core of 15-18 people on whom the community is largely
depending. In 2007, there were 18 volunteers who responded to 68 or more
fire alarms, and 15 of these same individuals were among the top 18
responders for EMS (those responding to 65 or more EMS alarms); 11 of
them are among the top responders for MVAs (those responding to 27 alarms
and up), and 17 of them among the most frequent responders for mutual aid
calls (those responding to 5 or more alarms).
A similar pattern is emerging this year. For first half 2008, 12 of these same
individuals are among 14 who responded to 100 or more alarms of any type.
At the other end of the spectrum, in 2007, 42 of the 77 volunteers responded
to fewer than 10% of calls of any type, and 14 of the 42 responded to as few
as 0 to 5 calls.
There is growing concern that there are not enough drivers who can show up
for alarm calls. CGR analysis of 2007 data provided by the FD shows:
- There were 29 individuals who drove for any type of alarm in 2007. Of
this group, 7 were among those who responded to more than 30% of
the year's calls; 4 among those responding to 20% - 30% of calls, 9
among those responding to 10%-20% of calls, and 9 who responded to
fewer than 10% of calls.
Another growing concern is what the Fire Chief calls substandard staffing.
Data provided by the FD shows that between January and May 2008 there
were a total of:
- 140 EMS calls, and more than 1/3 (50 calls) "had 1 medic or less."
- 135 fire calls, and 14 had "substandard crews," which means that the
piece of apparatus responded with "with less than the minimum
number of trained staff pursuant to the recognized standards."
Appendix A 20
When either COVA or the Albion FD needs backup, the Medina FD will
provide mutual aid. However, Medina and Albion are 10 minutes apart - an
important factor in an emergency.
COVA said its own biggest concern currently is a shortage of paramedics.
CGR Observations/Recommendations:
1. Based on the available information, CGR can make no judgment about what costs the
community might incur to begin moving to a partially paid FD staff.
2. We strongly recommend the community begin now to develop a coordinated plan to address
the emerging critical needs of the FD.
Area 4: Recreational Facilities & Services
Key Findings:
- There is no significant potential for cost savings or efficiency gains in this area, since the
Village is the only municipality offering recreational services.
FY 2007 Expenses = $39,000 and Revenues = $1,000
- Albion (T) has one ball field and Gaines has no parks
Area 5: General Government (excluding courts, which are addressed
separately under this area)
Key Finding:
The primary area to examine for cost savings is the clerk/finance function. Total costs for this
function, excluding benefits, combined = nearly $202,000, and there are 9 staff members plus
contract personnel (e.g., audits, bookkeeping) involved.
Breakdown of employed staff:
- Village - 4 FT (clerk/treasurer, deputy clerk/treasurer, 2 office clerks)
- Albion (T) - 1 PT clerk, 1 PT water clerk/deputy clerk
- Gaines - 1 FT clerk, 1 PT water clerk/deputy clerk, 1 "as needed" deputy
clerk
Appendix A 21
Breakdown of Expenses for FY 2007
Town of Albion
Admin. & Gen. Govt. Support Expenses
*Benefits Not Included
Transfers,
Other Funds
$65,000
16%
Land Purchase
& Right of Way
$46,435
11%
Central Data
Processing
$47,404
12%
Unallocated
Insurance
$56,030
14%
Other
$44,964
11%
Buildings
$54,433
13%
Elected Leaders
$22,231
5%
Clerk &
Financial
$69,312
18%
Village of Albion
Admin. & Gen. Govt. Support Expenses
*Benefits Not Included
Clerk &
Financial
$77,969
21%
Elected Leaders
$35,962
10%
Buildings
$46,751
13%
Other
$84,203
23%
Unallocated
Insurance
$117,785
33%
Appendix A 22
What Opportunity Exists to Reduce Costs and/or Increase Efficiency?
OPTION: Albion (T) contracts with the Village to provide clerk services, by appointing the
Village clerk/treasurer as its Town clerk
Potential Cost Savings:
- 2 small offices limits options for eliminating duplication
- Combining offices would enable the elimination of 1 FT clerk in the Town of Albion,
leaving a combined office of 4 FT + 1 PT staff
Cost of FT Town clerk, including benefits = $28,950
Total Cost Reduction for Albion (T) = $28,950 with tax savings Townwide of $.15 per $1,000
CGR Observations:
1. Excluding interfund transfers, Albion (T) administrative & government support expenses
total $339,000, and all but $6,000 is budgeted Townwide (exceptions: registrar of vital
statistics and library contractual expenses).
2. Gaines equivalent total is $194,000, and all but $5,700 is budgeted Townwide (same
exceptions).
3. Having an appointed, rather than an elected Town Clerk would require a public referendum.
(Note: 40 New York towns have appointed clerks.)
Town of Gaines
Admin. & Gen. Govt. Support Expenses
*Benefits Not Included
Central Data
Processing
$24,338
13%
Unallocated
Insurance
$26,981
14%
Other
$37,570
19%
Buildings
$32,225
17%
Elected Leaders
$17,966
9%
Clerk &
Financial
$54,512
28%
Appendix A 23
JUSTICE COURTS
Background Information:
- In 2007, per OSC data, the Albion (T) Court ranked #450 out of 1,252 town and village
justice courts in NYS relative to money raised in court.
Average annual revenues, 2005-2007 = $79,075 (local, county and state shared)
FY 2007 Town revenue share = $39,908, of which $2,220 paid to Village for parking
tickets in the Village, curfew violations, code enforcement violations. There is no
Village Court.
- Town of Gaines court ranked #703.
Average annual revenues, 2005-2007 = $48,918 (local, county and state shared)
FY 007 Town revenue share = $17,361
- Expenses incurred by Towns during FY 2007 (excluding benefit costs, but including
contractual expenses):
Albion (T) = $88,245 - ( 2 judges, 1 FT clerk)
Gaines = $10,365 - (1 judge - a PT clerk joined staff in 2008)
- Total personnel and benefits costs for Town-paid justices and clerks FY 2007:
Albion (T) = $89,270
Gaines = $14,935
- Over past 3 years, an average of 86% of cases started each year were related to vehicle
traffic and penal laws in the Albion (T) Court. Comparable data was unavailable from
Gaines Town Court
Potential Cost Savings
- NYS law allows for 2 adjoining towns to have one town court, with two justices (with
concurrent jurisdiction over matters in both towns) and a court clerk for each town. There
are 2 Orleans County towns (Shelby and Ridgeway) which consolidated into a single
court facility in the Town of Shelby.
- Gaines and Albion (T) could follow the same model. Since Albion (T) is the more active
court, it would logically be the site of any consolidated court.
Potential savings = approximately $9,900 Townwide in Gaines = to a tax savings of $.09 per
$1,000.
Appendix A 24
CGR Observations/Recommendations:
1. The real benefit of this opportunity is efficiency, since there is no significant cost savings.
2. Gaines justice is retiring 12/08 after 43 years in the position and the Town wants to assess its
court situation before making a commitment to any change in its current structure.
Area 6: Planning/Zoning and Code Enforcement
Code Enforcement, Planning and Zoning Overview FY 2007
Village
Albion
(T) Gaines
Code enforcement officer (CEO) 1 FT 1 PT 1PT
CEO wage and benefits total $26,474 $13,666
Code enforcement personnel services (benefits NA) $42,098
CEO admin wage and benefits total $1,446 $1,244
Number permits during year Unknown 58 60
Zoning Bd pay (salary or payment by meeting)
Annual combined for all members $1,600
Pay for each member $20/mtg $25/mtg
Zoning Board meetings infrequent rare rare
Planning Bd pay (salary or payment by meeting)
Annual combined for all members $2,600 $3,400
Pay for each member $25/mtg
Planning Board meetings monthly monthly monthly
Note: Albion(T) CEO also received additional $5,000 for duties a former staff member had been doing.
Code Enforcement, Zoning & Planning
FY 2007 Revenues & Expenses
$0
$20,000
$40,000
$60,000
$80,000
$100,000
$120,000
$140,000
Albion (T) Gaines Albion (V) Total
Revenues Expenses
Appendix A 25
Key findings:
1. The Village has undergone significant staff turnover in the past 2 years in its code
enforcement function, and the current CEO, who has only been on the job a few months, is
dealing with serious issues. For example, the CEO does not have information available that
can readily tell him:
- When businesses in the Village were last inspected
- How many rental properties there are in the Village, and when they were last
inspected
- How many files are still open from previous years
- How many permits there were in 2007
- What the status is on remediation of code violations in homes and businesses
that have received letters because they are not in conformance with sanitary
sewer codes (e.g., illegal connections).
2. One town (Albion) is interested in sharing services with the Village. Gaines is
predominantly interested in exploring a countywide consolidated code enforcement function,
which is beyond the scope of this study.
CGR Observations/Recommendations
1. Provide the CEO with paid administrative support to get a handle on "what exists" and to
start an electronic filing system that includes inspection notes, dates of inspections, etc.
2. Any assessment by CGR of the potential cost savings of shared services in code enforcement
between the Village and Albion (T) would be premature, since 2007 expenditures for the
Village do not provide an accurate guide to what the function should cost.
3. Shared services, likely beginning no earlier than 2009, could lead to a more efficient and
professional code enforcement function for both the Village and Town. Once that is
established, Gaines may be more interested in sharing services in this area.
APPENDIX B: FUND BALANCES
2000-2007
Appendix B
Fund Balances for the Town and Village of Albion
and Town of Gaines
Fund / Purpose Fund Balance
(FY 2007)
Town of Albion
General $408,662
Highway $494,837
Water Districts $508,790
Fire District $190
Sewer Districts $31,295
TOTAL $1,443,774
TOTAL excluding districts $903,499
Village of Albion
General $1,102,695
Community Development $24,748
Water (Village-wide) $135,864
Sewer (Village-wide) $664,617
TOTAL $1,927,924
Town of Gaines
General $409,015
Highway $281,482
Water Districts $213,939
TOTAL $904,436
TOTAL excluding districts $690,497
*Excluding Capital Projects (H) Fund
APPENDIX C: OUTSTANDING DEBTS
AS OF 12-31-08
Appendix C
Outstanding Debt as of 12-31-08
Fund / Purpose Outstanding
Principal
Town of Albion
Water Districts $2,532,050
Sewer Districts $515,000
TOTAL $3,047,050
TOTAL excluding district debt* $0
Village of Albion
General $835,901
Water (Village-wide) $1,465,000
Sewer (Village-wide) $1,390,000
TOTAL $3,690,901
Town of Gaines
General $125,000
Highway $21,600
Water Districts $582,956
TOTAL $729,556
TOTAL excluding district debt* $146,600
*Water and sewer district debt is only levied on the users in specific districts.
**Water and sewer costs are not restricted to districts, but are virtually villagewide.
APPENDIX D: THE VILLAGE OF
ALBION WATER SYSTEM
This Appendix includes water-related information on all six municipalities that are served
by the Village system. Specific personnel costs were provided separately to the Study
Committee.
The Village of Albion Water System
Overview of What Exists
Prepared for the Water Committee Representing the Village of Albion and Towns of
Albion, Gaines, Barre, Carlton and Murray
August 14, 2008 (with updates as of Oct. 23, 2008)
This document was prepared with funds provided by the New York State Department of State
under the Shared Municipal Services Incentive Grant Program.
Objective:
Think about this system as a regional asset, instead of six separate systems.
System Overview
1) Water Treatment Plant
a. Built in 1962, with one major renovation in 1994 ($1 million)
b. Owned and operated by the Village of Albion
c. Some water treatment plant facilities are on Village land, some on town land and
some components involve more than one entity. Examples:
i. Water plant: owned by the Village, located in Carlton
ii. Water tank: owned by the Village, located in Gaines
iii. Facilities in Barre: Village leases property from Barre and owns the tank
but Barre owns the booster station and pump.
2) Capacity Overview
a. Capacity: 2.5 million gallons - Village has variance to go to 3 million gallons
b. Average use: 1.55 million gallons/day
c. Peak use: 2.1 million gallons
d. Percent Unaccounted/Unbilled Water is 11.92% in the Village, and ranges from
4% - 30% in the towns
2
3) Water Distribution (see graph)
a. Village sells water directly to 4 towns: (Carlton, Gaines, Albion, Barre) and all
towns except Carlton re-sell water to one or more towns in the system and
maintain their own "retail" operations.
b. Murray doesn't directly buy from the Village, but purchases water resold by
Albion Town and Gaines and also operates own retail system.
c. Village primary customers, based % purchased in FY 2007: Village (39%);
Gaines (28%); prisons (15%); Barre (14%); Carlton (2%); Albion Town (1%);
Lakeside State Park (<1%).
d. All Village water purchasers exclusively use Village water except Murray.
Murray gets 44% from Village; 49% from Monroe County Water Authority, 7%
from Village of Holley (based on FY 2007).
e. Towns are responsible for distribution and maintenance within their own
boundaries. Distribution/maintenance is overseen by 6 managers, whose primary
responsibility is highways.
f. 210 total miles of water lines in the system (main and distribution)
g. 32 water districts
i. Village - 100% of properties have water service available now
ii. Towns: Albion (90%) of properties have water service available; Gaines
(80%); Barre (10%); Carlton (50%); Murray (80%)
iii. Not all with service available are customers
iv. Different mix of customers in the 6 entities (e.g., homes, farms,
businesses, prisons, state park)
Financial Overview (based on fiscal years 2006 and 2007 & apportioning Murray at 44%)
4) Total Water System Revenues
a. 2006: $3,355,469
b. 2007: $3,549,398
5) Total System Expenditures
c. 2006: $4,005,017
d. 2007: $3,623,269
3
e. With system managed by 6 entities,
i. 2006: $650,000 deficit systemwide
ii. 2007: $74,000 deficit systemwide
6) Key points for the system participants based on 2006 and 2007 data (see charts)
a. Village had small excess of revenues over expenditures both years
b. Gaines had a major deficit in 2007 (revenues of $323K , expenses of $512K)
c. Only 1 town had more revenues than expenses both years - Town of Albion
7) Principal Debt outstanding (based on information received to date)
a. 2006: BANS = $1.5 M; Serial Bonds = $6M
b. 2007: BANS (unknown); Serial Bonds = $6.25M
8) Fund Balances: $1M (2006) and $1.1M (2007)
Personnel Overview (based on past 2 years, includes contracted services)
10) 39 staff members work in the water system, 10 are budgeted fulltime to water
11) Seven managers in the system (includes 2 in the Village)
12) Systemwide - personnel expenses account for about 25% of total expenditures
a. For the Village, both years, personnel expenses are about 50% of all water
expenses (with other major components: water plant 20% and debt 18%)
b. For Towns, in 2007, personnel expenses were about 10% of all water expenses
(with other major components, in order: water purchases, debt, and transmission
& distribution).
The Billing Process
13) About 5,500 invoices are sent during each quarter of the year - six separate billing
operations, and some towns have outsourced some bookkeeping
14) Different rate structure - ( rate sheet will show 20 rates - there is some overlap, but
overall structure is complex)
15) 3 different quarterly billing cycles in the system
16) At least 4 different billing systems used
4
17) 3 types of customer meters in use
18) 4 entities have, or are installing, radio read systems - 2 do not have such systems
Other Information in Packet: (e.g., equipment used in the system, water grant requests
pending, meter installation and maintenance information)
Summary
- See summary charts (e.g., expenses by type, revenues by type)
- Capital needs in the future for the system, but needs are unknown
Preparation of a capital improvement plan for the Water Treatment Plant,
2 Booster Pump Stations, 2 Water Storage tanks and the town of Barre
tank, the Village's transmission line, and the Village (inside) distribution
system = $24,950 (Chatfield Engineers, November 2007)
- Next Step: Committee discussion of how to proceed
Gaines
(sells to Carlton &
Murray)
Albion (T)
(buys from Barre
and sells to
Murray)
Barre
(sells to Albion (T))
Carlton
(buys from
Gaines)
Murray
(buys from Albion
(T) and Gaines)
Notes
1) Reasons for reselling Village water instead of direct public purchase: a) proximity; b) flow of water (e.g. fresher water);
and c) water pressure needs
2) Village water is used exclusively in all towns except Murray, which also uses water from the Monroe County Water
Authority and the Village of Holley.
The Village of Albion Water System
The Village of Albion is the primary seller, while the Towns of Carlton, Gaines, Albion, and
Barre are purchasers and resellers of Village water. The Town of Murray is only a
purchaser. "Re-sold" water goes to customers that are not directly served by the Village.
Village
(sells to Carlton,
Gaines,
Albion(T) &
Barre)
Page 5
$1,535 $1,616
$1,480 $1,518
$0
$300
$600
$900
$1,200
$1,500
$1,800
FY 2005-2006 FY 2006-2007
Village of Albion
Water Revenues and Expenditures (in $1000s)
Total Revenues Total Expenditures
Page 6
2) New quarterly administrative charge fee of $5 instituted, along with new charge for turning off water,
which resulted in about a $66,775 increase year-over-year.
1) Quarterly meter rents doubled from $2.50 to $5, generating about $22,300 year-over-year.
Despite a $17,500 drop in metered water sales year-over-year, Village water stayed in the black in
2006-07 largely because of new charges on Village residents:
Note
Albion (V)
$535,151
41.3%
Carlton
$22,463
1.7%
Gaines
$312,640
24.2%
Barre
$186,658
14.4%
Albion (T)
$15,844
1.2%
Lakeside St. Pk.
$4,731
0.4%
Prisons
$216,949
16.8%
Village of Albion Customer Revenues FY 2005-2006
Page 7
Albion (V)
$556,486
39.1%
Carlton
$26,925
1.9%
Gaines
$397,209
27.9%
Barre
$204,123
14.3%
Albion (T)
$19,142
1.3% Lakeside St.
Pk.
$4,234
0.3%
Prisons
$216,367
15.2%
Village of Albion Customer Revenues FY 2006-2007
Note
*Carlton is the only one of the four towns that is not reselling village water to another town.
$383
$323
$291 $313
$404
$491
$562
$616
$375
$512
$299 $307 $337
$417
$496
$646
$0
$100
$200
$300
$400
$500
$600
$700
FY 2006 FY 2007 FY 2006 FY 2007 FY 2006 FY 2007 FY 2006 FY 2007
Gaines Gaines Barre Barre Albion (T) Albion (T) Carlton* Carlton
Four Towns That Are Direct Purchasers of Village Water:
Water Revenues and Expenditures (in $1000s)
Revenues Expenses
Page 8
Notes
*The Town of Murray receives water from the Village of Albion, the Monroe County Water Authority
$411 $432
$181 $190
$2,311
$506
$1,017
$223
$0
$500
$1,000
$1,500
$2,000
$2,500
FY 2006** FY 2007 FY 2006 FY 2007
Total Total Albion Water Albion Water
Town of Murray
Water Revenues and Expenditures (in $1000s)
(Based on CGR Estimate*)
Revenues Expenses
Page 9
**In 2006, expenses exceeded revenues by $1.9 million, due to debt related to a new water district.
Without that debt, the water operation was about $2,300 in the red.
y g , y y
and the Village of Holley.
Only 44% of Murray's revenues and expenses are estimated by CGR to
be related to the Village of Albion water system.
Revenue Expense Revenue Expense
Albion (V) $1,535,238 $1,480,246 $1,615,516 $1,518,428
Gaines $383,117 $375,006 $323,429 $512,475
Barre $290,585 $299,081 $312,987 $306,569
Albion (T) $404,087 $337,262 $491,087 $416,883
Carlton $561,692 $496,370 $616,251 $646,243
Murray2 $180,750 $1,017,052 $190,128 $222,671
TOTAL $3,355,469 $4,005,017 $3,549,398 $3,623,269
Total Revenues & Expenses by Municipality
FY 20061 FY 20071
Notes
1The Village of Albion's fiscal year begins on 06/01 and ends on 05/31.
1The Town of Murray receives water from the Village of Albion, the Monroe
County Water Authority and the Village of Holley. CGR estimates that only 44%
of the Town's revenues are related to the Albion water system. Thus, the Towns'
charts include only 44% of Murray's total revenues.
Page 10
BANS: New Debt
Issued
Serial Bonds :
New Debt Issued
BANS: Principal
Debt Outstanding
Serial Bonds:
Principal Debt
Outstanding
Albion (V) $0 $0 $0 $1,840,000
Gaines $0 $0 $0 $350,100
Barre $0 $0 $0 $864,500
Albion (T) $0 $0 $960,790 $2,086,400
Carlton $1,279,050
Murray
TOTAL $0 $0 $960,790 $6,420,050
BANS: New Debt
Issued
Serial Bonds:
New Debt Issued
BANS: Principal
Debt Outstanding
Serial Bonds:
Principal Debt
Outstanding
Albion (V) $0 $0 $0 $1,655,000
Gaines $124,400 $0 $124,400 $341,100
Barre $0 $0 $0 $805,500
Albion (T) $0 $357,500 $2,588,300
Carlton $1,202,000
Murray
TOTAL $124,400 $357,500 $124,400 $6,591,900
FY 2006 FY 2007
Albion (V)2 $117,000 $135,864
Gaines $191,861 $213,939
Barre $33,331 $46,128
Albion (T) $434,626 $508,790
Carlton $248,741 $218,749
TOTAL $1,025,559 $1,123,470
New and Outstanding FY 2006* Debts for Water
New and Outstanding FY 2007* Debts for Water
Fund Balances at End of Fiscal Year
2The Village of Albion's fiscal year begins on 06/01 and ends on 05/31.
(For Municipalities Only Using Albion Water)1
1The Town of Murray receives water from the Village of Albion, the Monroe
County Water Authority and the Village of Holley. Fund balances vary by
district and are not included here.
*The Village of Albion's fiscal year is 06/01/06 - 05/31/07.
*The Village of Albion's fiscal year is 06/01/05 - 05/31/06.
(Based on Data Provided to CGR as of 8/08)
(Based on Data Provided to CGR as of 8/08)
Page 11
Albion (V) 15 8 2 5
Gaines 3 1* 2
Barre 8 2* 6
Albion (T) 4 1 3
Carlton 4 2 1 1
Murray** 5 2 3
TOTAL 39 10 3 9 8 9
Budgeted <10% to water
100% to Water
Total #
Employees
Total Number of Municipal Personnel Currently Working in Water System
Municipality 50%-80% to
Water
30%-40% to
water
15%-25% to
Water
* Includes 1 employee who is part-time employee
Page 12
Village Chief Operator - Water Plant 100%
Village Highway/Water Supt. 30%
Gaines Highway/Water Supt. 40%
Barre Highway Supt. 5%
Albion (T) Highway/Water Supt. 40%
Carlton Hwy. Supt. 27%
Murray Hwy Supt. 25%
Managers
Budgeted
Time
The Seven Managers in the System & %
of Their Time Budgeted to Water
Page 13
Municipality Residential1 Commercial Other Towns2 Prison2 State Park2 Totals
Village 2213 66 26 6 2 2313
Gaines3 616 2 618
Barre 281 1 282
Albion (T) 508 2 510
Carlton 1360 1360
Murray4 367 367
TOTAL 5345 66 31 6 2 5450
64
GRAND TOTAL 5514
Other invoices in quarter (billing by the Village to prisons and towns is monthly)
Total Water System Customer Invoices Sent Quarterly - FY 2007
Notes
4Murray's total billed customer base = 834; number shown is 44% of total
3Gaines customer #s for 2007 not available; number shown is customer base in 2008
2Village invoices = number of meters that must be read
1Some towns list all customers under residential or do not distinguish between customer types
Page 14
Village (inside) Residential/Commercial $16.04 $5.00 $5.00 5,610 $2.86
Village (outside) Residential/Commercial $21.04 $9.00 $5.00 5,610 $3.75
Village (prison)2 Correctional facility $15.00 $120.00 $3.75
Village (towns buying direct) Town Yes, if Village meter $2.86
Village (Lakeside St.Park) Lakeside State Park Yes, if Village meter $2.86
Gaines (inside) Residential $3.90
Gaines (inside) Bulk $4.00
Gaines (Murray) Town of Murray $2.99
Gaines (Carlton) Town of Carlton $2.86
Gaines (Ridgeway) Town of Ridgeway4 $2.99
Barre (inside) All customer types $5.00
Barre (Albion T) Town of Albion $2.86
Albion (T) (inside) Water customers $15.00 500 $4.25
Albion (T) (outside) Dist. #6 customers in
Gaines $2.86 500 $2.86
Albion (T) (Murray) Town of Murray $2.99 500 $2.99
Albion (T) (Barre)3 Town of Barre $2.86 500 $2.86
Carlton (inside) Residential $18.00 3,000 $3.90
Carlton (inside) Farmers/Irrigation $3.80
Murray (inside) Residential $15.00 $4.00
Murray (inside) Farmers/irrigation $3.50
Notes
4Ridgeway purchases water only if needed
3There can be bi-directional flow between Barre and Albion (T)
2Costs for prison are based on 3 large meters
Rates in the Village of Albion Water System
1Village quarterly meter charges are $3.60 to $40 depending on meter size, but typical residential charge is $5.
Minimum Gallons Cost per 1000/Gal
Quarterly Meter Rent1 Over Minimum Cost per 1000
Gallons Used
Seller (location where water
used) Customer Class Minimum Charge
(if any) - Quarterly
Quarterly Admin
Fee (if any)
Page 15
Albion (V) KVS
Gaines Business Automation Service Utility Billing Software
Barre NOS
Albion (T) NOS
Carlton Williamson Law Book
Murray Williamson Law Book
Albion (V) Feb., May, Aug., Nov.; Towns & Corr. Facility billed monthly
Gaines Jan., Apr., July, Sept.
Barre Jan., Apr., July, Sept.
Albion (T) Feb., May, Aug., Nov.
Carlton March, June, Sept., Dec.
Murray Jan., Apr., July, Sept.
Water Billing Systems
When Water Bills are Sent Out
Page 16
Albion (V) Gaines Barre Albion (T) Carlton Murray
Precision & Sensus Sensus Sensus Neptune Sensus Sensus
Albion (V) Gaines Barre Albion (T) Carlton Murray
Install your meters? yes yes no no* yes
Maintain own meters? yes yes yes yes yes
* Contractor or plumber installs meters
Type of Customer Meter Used
Meter Installation and Maintenance
Meter Reading
3) Towns of Albion has installed, and Gaines and Murray are installing,
radio read systems.
2) The Village is installing a Datamatic automated meter read system (radio
read/leak detection).
1) Village and 5 towns read their own meters.
Page 17
Albion (V) Gaines Barre Albion (T) Carlton Murray
11.92% NA about 4.5% 6% about 30% 4%
Albion (V) Gaines Barre Albion (T) Carlton Murray Total
1 7 4 6 1 13 32
Albion (V)* Gaines Barre Albion (T) Carlton Murray** Total
32 40.47 26.41 37.87 50 23.47 210.22
* Village has 19 miles of mains, 13 miles of distribution lines
**Murray has 39.11 miles. CGR estimates about 60% carry Albion Village water.
Percent Unaccounted/Unbilled Water
Number of Water Districts in the System
Miles of Water Lines
Page 18
Description Owned/Rented? Year Purchased % Of Time Used in
Water Operations Other Uses
John Deere Backhoe 310 Owned 2000 80 Highway, Sewer
John Deere Loader Owned 2000 30 Highway, Sewer
International 6 Wheel Dump Owned 1992 60 Highway, Sewer
Ford 10 Wheel Dump Owned 1994 40 Highway, Sewer
Ford F250 Owned 2004 30 Highway, Sewer
Ford F250 Owned 2004 100 N/A
Chevy 1 Ton Utility Owned 1998 100 N/A
Chevy 1 Ton Utility Owned 1999 30 Highway, Sewer
4'' Trash Pump Owned 2007 60 Highway, Sewer
2'' Submersible Owned 2007 60 Highway, Sewer
6100 Generator Owned 2007 60 Highway, Sewer
Ford F550 Own 2006 30 Highway
N.H. Backhoe Own 2005 50 Highway
Pusher Own (shared with Town
of Carlton) 1996 100 N/A
Mud-Sucker Pump Own 1996 100 N/A
Backhoe Owned 2005 5 Highway, Parks
Water Tools Owned 1996 100 N/A
Generators Owned 2000 100 N/A
Pickup Truck Owned 2008 5 Highway, Parks,
Cemetery
Water Department Parts Owned 1996 100 N/A
1991 Case Back=Hoe Owned 1991 70 Highway
2005 F550 Service Truck Owned 2007 80 Highway
2006 F550 Dump Truck Owned 2006 30 Highway
1991 Ditch Witch Pusher Owned 1991 100 N/A
1992 Stone Trash Pump Owned 1992 100 N/A
Backhoe Owned 50% Highway
Small Excavator Owned 80% Highway
Cutoff Saw Owned 100%
3" Water Pump Owned 100%
Test Pump Owned 100%
1 Ton Dump Truck Owned 100%
Service Truck Owned 100%
Meter Readers (2) Owned 100%
2003 Dodge Extended Quad Cab Owned 2003 100%
1979 Ford Utility Owned 2001 100%
2000 New Holland Backhoe Owned Not Provided 100%
2001 Interstate Trailer Owned Not Provided 50% Highway
Coleman Gen-Compressor Owned Not Provided 100%
Hydraulic Hammer/Backhoe Owned Not Provided 100%
Stone Water/Trash Pump Owned Not Provided 100%
Mole Trench Box/Pushing Rods Owned Not Provided 100%
Drilling/Tapping Machine Owned Not Provided 100%
Hydraulic Pump and Hose for Backh Owned Not Provided 100%
Hydraulic Water Valve Wrench Owned Not Provided 50% (shared with
Clarendon) 50% Clarendon use
Micromax Oxygen Monitor Owned Not Provided 100%
Water Pump Owned Not Provided 100%
Trash Pump Owned Not Provided 100%
Carlton
Murray
Water Equipment by Municipality
Albion (V)
Gaines
Barre
Albion (T)
Page 19
Albion (V)
Gaines
Barre
Albion (T)
Carlton
Murray
Albion (V)
Gaines
Barre
Albion (T)
Carlton
Murray
Approved by USDA to begin construction of Water District #9 in fall 2008;
requested $35,000 federal member money for WD #8.
None pending
None pending
Yes, applied for Small Cities grant for water district 15, and a Rural Dev. grant
for Water District 16
Water Service Status -- Village or Townwide, as of 1-1-08
Water Grant Requests Pending or Recently Approved
Requested $60,000 member item for security for Water Plant and Booster
Stations
Secured for 2008 project: $136,000 loan & $309,000 grant; 2009 project:
$278,000 loan & $582,000 in grants
100% of properties have water service available and are customers now
80% of properties are tied into municipal water
50% of properties have water service, and all with service are connected
10% of properties have water service available to them
80% of properties have water service available; 60% are customers
90% of properties are tied in; with planned improvements thru 2009, only 17
homes will be w/o service
Page 20
Albion (V)
Gaines
Barre
Albion (T)
Carlton
Murray
Water District 14, a joint project with Gaines, will be constructed in 2008. Have grants pending for two other proposed
districts.
No firm plans but need to put in new lines, ideally between 2010 and 2012
In 2009, will purchase new backhoe for $80,000 plus complete two improvement areas (i.e., water districts 7& 8)
Planned Capital Improvements in Next Few Years
Are installing new leak detection system; a new breakwall along shoreline is planned for construction by Army Corp of
Engineers in 2008. (This will be federally funded and cost the village nothing.)
Will put in District 8 (serving 24 properties) in 2008, and District 9 (serving 20) in 2009
Water tank inspection ($2,200) and possible painting ($25,000). Discussing new water district, serving 117 parcels, at est.
cost of $1,270,080
Page 21
Metered
Water Sales
$1,487,216
97%
Other
$48,022
3%
Breakdown of FY 05-061 Water System Revenues:
VILLAGE
Breakdown 06 071 Water Real
Property
Taxes
$651,352
36% Metered Water
Sales
$1,039,365
57%
Other
$129,515
7%
Breakdown of FY 2006 Water System Revenues1:
TOWNS
Page 22
Notes
1The Village of Albion's fiscal year begins on 06/01 and ends on 05/31.
Notes
1The Town of Murray receives water from the Village of Albion, the Monroe County Water Authority and the Village
of Holley. CGR estimates that only 44% of the Town's revenues are related to the Albion water system. Thus, the
Towns' charts include only
44% of Murray's total revenues.
Metered
Water Sales
$1,469,670
91%
Other
$145,846
9%
of FY 06-System Revenues:
VILLAGE
Real
Property
Taxes
$670,160
35%
Metered Water
Sales
$1,058,956
55%
Other
$204,766
10%
Breakdown of FY 2007 Water System Revenues:
TOWNS
Water Plant
$296,303
20%
Transmission &
Distribution
$63,136
4%
Debt
$272,456
18%
Misc.
$127,961
9%
Personnel
$720,390
49%
Breakdown of FY 05-061 Water System Expenses:
VILLAGE
Debt
$268 881 Misc.
Breakdown of FY 06-071 Water System Expenses:
VILLAGE
Purchase of
Water
$847,598
33%
Transmission &
Distribution
$96,690
4%
Water
Administration
$19,057
1%
Misc.
$15,000
1%
Debt
$1,306,255
52%
Personnel
$240,171
9%
Breakdown of FY 20061 Water System Expenses2:
TOWNS
Page 23
1In FY 2006, the Town of Murray had a substantial increase in debt due to a new water district.
Notes
1The Village of Albion's fiscal year begins on 06/01 and ends on 05/31.
2The Town of Murray receives water from the Village of Albion, the Monroe County Water Authority and the Village
of Holley. CGR estimates that only 44% of Murray's expenses are related to the Village of Albion water system.
Thus, the Towns' charts include only
44% of Murray's total expenditures.
Notes
Water Plant
$303,691
20%
Transmission &
Distribution
$41,667
3%
268,881
18% $131,157
8%
Personnel
$773,032
51%
Purchase of
Water
$1,133,656
54%
Transmission &
Distribution
$184,919
9%
Water
Administration
$24,539
1%
Misc.
$15,000
1%
Debt
$504,977
24%
Personnel
$241,751
11%
Breakdown of FY 2007 Water System Expenses:
TOWNS
APPENDIX E: PUBLIC
PRESENTATION
1
Consolidation Study Overview
For the Village of Albion, Town of Albion & Town of
Gaines
Options for the Future
Charles Zettek, Jr., M.S.
VP & Director, Government Management Services
Vicki Brown
Associate Director
November 20, 2008
Appendix E
2
Funds for the Study
Funding for the study was provided
by the New York State Department of State
under the Shared Municipal Services Incentive
Grant Program
4
Key Definitions
CGR = Center for Governmental Research in
Rochester
Town = All residents within a designated Town's
border
Village (V) = Residents inside the Village border
Albion TOV = Residents in the Town of Albion
but outside of Village border
Gaines TOV = Residents in the Town of Gaines
but outside of Village border
5
Key Definitions (continued)
Shared Services = Consolidation of services while
keeping Village's and Towns' governments
Village Dissolution = Village dissolves and
merges operations with a Town
Full Consolidation = Village dissolves and Towns
merge, resulting in 3 governments becoming 1
- Full consolidation could involve having either:
- Both towns dissolve and create new town
- Or, 1 town annexes the other
6
Key Definitions (continued)
Efficiency = Eliminate duplication or overlap
Cost Savings = Reduce expenses
Cost Shift = Costs remain but who pays changes
AIM = State Unrestricted Aid (Aid and Incentives
to Municipalities)
New AIM Incentives = Additional AIM funding
for Consolidation (but not for shared services)
TAV = Taxable Assessed Valuation
7
Tax Savings Benchmark
(Based on 2007 Taxable Assessed Valuation)
8
Consolidation Study: Key Goals
Identify viable options for sharing services, up to and
including full consolidation to improve:
- government efficiency
- cost effectiveness
Consider cost and tax impact of viable alternatives
After study committee selects preferred option,
identify action steps for implementation
9
CGR Finding: 3 Viable Options
1. Service sharing in specific areas involving either:
- Village & Town of Albion
- All 3 municipalities
2. Dissolution of the Village & merger with Town of Albion
- About 80% Village population & land area already in
Town of Albion
3. Full consolidation of the village and two towns
10
Additional Areas Reviewed for the
Committee
Expand the study for "water" to also include the
Towns of Barre, Carlton and Murray
- Service sharing or consolidation could also impact the
3 other towns served by Village water system
Help the committee understand challenges impacting
fire services
- Despite fact that "fire" is already a shared service
11
Water System Overview
Water is a $3.5 million business for 5 towns plus the
village.
- Issues:
Not really managed as a single integrated system,
but in 6 pieces
Future capital needs are unknown
Real opportunities for both cost savings and
operating efficiencies - example - water meter and
billing systems.
Village of Albion Water System
13
Baseline of Current Operations:
Services Offered and Budgets
14
Option #1 Service Sharing:
Potential Savings
15
Option #1 Service Sharing:
Different Types
Services that can be shared on a "stand-alone"
basis through a shared services agreement
- Clerk/Finance (to save $28,950 annually)
- Justice Courts (to save $9,900 annually)
Services that are "interdependent" (e.g., linked to
having shared services in more than one area)
- Streets/Highways (to save up to $229,429)
- Water (to save up to $68,218)
16
Option #2 Village Dissolves & Merges
Albion (T): Potential Cost Savings
Key factors to consider
- Cost savings due to efficiencies (i.e., shared services)
- NYS AIM incentives for dissolution or consolidation
For current, combined tax levy of $2.9M
- Efficiency savings = $210,000 (7%)
- New AIM due to incentives - loss of Gross Utilities Tax = $325,000
(11%)
Total potential savings for "consolidated" T &V Albion =
$535,000 (18% property tax reduction)
17
How Would Option #2 Impact
the Town of Gaines?
Gaines would lose the town wide levy collected from
Village taxpayers
- In 2007, total = $93,976
- This equates to 22% of Gaines town wide tax levy
In 2007, town wide levy = $424,094
This loss might result in a maximum town wide tax
increase of $1.14 per $1,000 of taxable assessed valuation,
but,
Gaines could be held harmless by an inter-municipal
agreement to share the cost savings from the TofA-VofA
consolidation
18
Option #2: Impact on Gaines
(Data Compiled by CGR to Assess Impact)
19
Option #3 Full Consolidation:
Potential Taxpayer Cost Savings
Key factors to consider
- Cost savings due to efficiencies (i.e., shared services)
- NYS AIM incentives for dissolution or consolidation
For current, combined tax levy of $3.4M
- Efficiency savings = about $336,000 (10%)
- New AIM due to incentives - Loss of Gross Utilities
Tax = $400,000 (12%)
Total potential savings = $736,000 (22%)
20
Additional Considerations: Any
of the 3 Options
Depending on option selected, there may be
opportunity, over time, to reduce equipment and
gain additional one-time cost savings
Efficiency savings may be reduced by future
agreements on paying employee (s) such as
highway superintendent or deputy more for
having greater job responsibilities (CGR
estimates approximately $50,000 additional cost)
21
Additional Considerations: Options
Involving Dissolution/Consolidation
For options involving dissolution/consolidation the AIM
incentives = ongoing funding streams, per NYS 2007-08
budget
- Future annual % AIM increases to be based on total
of standard AIM + incentive
Eliminating duplicate boards and legal services could save
up to $50,000
Under full consolidation, may be able to sell a facility and
put it back on the tax roll (e.g., a town hall)
22
Considerations: Options Involving
Dissolution/Consolidation (2)
Police would be impacted. Coverage options:
1. Provide coverage to consolidated community (e.g.,
Village + Town of Albion or Village + 2 Towns), or
2. Request approval of a special police district for the
former Village which would hold services and taxes
harmless for everyone.
Separate study could be undertaken to examine
other options for the future (e.g., Sheriff
providing coverage)
Considerations: Options Involving
Dissolution / Consolidation (3)
FIRE/EMS
Current all-volunteer fire department model can't meet
future needs
- Issues:
12,400 people living in 60-square-mile area largely
dependent on core of 18 volunteers
Future design & cost of new model are unknown
Need to conduct a Fire/Emergency services study to
determine options for fire and EMS, such as Central
Orleans Volunteer Ambulance company.
24
Considerations: Options Involving
Dissolution / Consolidation (4)
Existing debt would be paid off by existing
incurred by community's taxpayers would be
paid off by those taxpayers after consolidation.
Fund balances could be used to pay off debt or
for other capital needs based on agreements by
affected parties
Dissolution/Consolidation Steps
1. Village and/or Town (s) would decide to seek a
dissolution vote,
2. A Dissolution Study Committee would be formed of
Village and Town representatives to develop a
Dissolution Plan,
3. For a Village Dissolution, village voters only would vote
at a village election. For a Town Dissolution, all town
voters would vote at a town election.
4. If the petition to dissolve is approved by a majority vote,
the Village or Town(s) would formally dissolve
December 31 of the year following the election.
26
Next Steps
Public presentation tonight (11/20/08) - also
posted, with backup information at www.cgr.org
Public provides feedback to committee through
CGR (http://live.cgr.org/albion)
Study committee selects preferred option and
discusses action steps for implementation
CGR delivers Final Report to Committee
APPENDIX F: SURVEY FEEDBACK
Appendix F 1
Survey Responses Received by CGR Regarding
Potential Options for the Village of Albion and Towns of Albion & Gaines
Comment Period: Nov. 20 - Dec. 4, 2008
Summary: SURVEY RESULTS
- 26 total surveys were completed
- 12 residents said stay with the status quo (maintain three independent entities)
- 9 residents listed consolidation of all three entities as their first choice; 1 resident listed
it as a second choice
- 2 residents listed consolidation of the Town and Village of Albion as a first choice; 3
residents listed it as a second choice
- 3 residents said shared services was their first choice; 1 resident listed it as a second
choice; 2 residents listed it as a third choice
- With regard to shared services (multiple choices possible):
o 4 residents said combine the water services of all three entities; 3 residents
would choose to combine water services of the Town and Village of Albion
o 2 residents said combine the streets/highway departments of all three entities; 4
residents would choose to combine the streets/highway departments of the Town
and Village of Albion
o 4 residents said combine the Justice Courts of the Towns of Albion & Gaines
o 3 residents said combine the clerk/finance operations of the Town and Village
of Albion
Comments: STATUS QUO
- As a Gaines resident, the options presented appear to cost the Town of Gaines more
money. Even with a small monetary savings, the loss of services would not be worth it.
Has anyone accounted for the legal fees to consolidate? I feel the study is incomplete.
- Taxes in Gaines are not out of line--services are good. I cannot believe AIM money will
be around forever.
- After reading your info online, with all the cuts to the street dept (manpower), I cannot
believe they can provide the service they currently provide. Both towns have healthy
Appendix F 2
fund balances; this looks like help to the village. Not interested; I own property in both
towns.
- I see only problems with this and no cost savings. As a resident of both Gaines and the
Village of Albion, all I see is loss of service and more cost.
- I do not want to have my tax dollars rebuilding the Village of Albion. Their
infrastructure is in bad shape. (Gaines resident)
- Leave it alone! Don't get involved with the village! The village is an embarrassment!
- Show me a major savings and I would think about it.
- I have a $150,000 home in Gaines and I'm fine.
- The proposed savings do not warrant any changes to the present operations of the
governments of these towns and their residents. Being a resident of the town of Gaines,
we do not wish to have anything to do with the town of Albion and do not wish to be
linked to the Village.
Comments: SHARED SERVICES
- Sharing equipment could be an option.
- The program was interesting and thought-provoking. When it comes to numbers I get
confused--to compare the costs, to provide services--these are not available to all in the
towns. So before figuring the cost or savings, the cost of providing these services must
be figured in--water, sewers, for instance. As it stands now, it wouldn't be balanced--fire
department--consolidate with Barre and Carlton, police--we have the sheriffs that cover
the area now. If Dawn Allen can say consolidation works for assessment without a
massive headache, I can see one supervisor, one board of trustees, one justice, etc. But
my question--will those who get the positions be able to work for the "forest--not the
trees"? I don't think there are enough people looking at the situation in our area in that
way. Maybe the answer for now is "shared services" until the towns get water available
to all town residents--things like that.
- Not interested in consolidation--Village of Albion has too many problems. (Gaines
resident)
- Village DPW operations are not what they used to be with respect to preventative
maintenance programs. The same scenario may be true regarding code enforcement. The
village has grown over the years but the workforce to maintain the infrastructure has
decreased substantially over the years. As a result, much response is done out of crises
versus routine preventative care.
Appendix F 3
Comments: CONSOLIDATION
- I strongly support any and all forms of government consolidation in areas of low
population. I have always felt small village and town governments are expensive. The
duplication of services is too costly to continue. As we now face bad national economic
conditions, it's time for local governments to reduce spending through consolidation.
This would help in keeping local taxes low.
- Status quo is unacceptable.
- I would recommend dissolving the village into the Town of Albion or if Gaines is
interested then add 3 into 1!
- Do more research on this subject and talk to the employees and supervisors more than
just one hour. For the money you are making it should be a lot more in depth. Try
working a little harder and you will get better results in the end.
- I would have actually preferred to recommend retaining the Village of Albion with some
shared services, but it appears to me that the current tax structure of the County of
Orleans, Towns of Albion and Gaines, and Village of Albion is outdated and no longer
fair. It seems to place an excessive tax burden on the residents and businesses of the
Village of Albion, which is likely contributing to a decline within the Village of Albion.
Over the years I have observed more property investment taking place outside the village
- the current taxation distribution is probably contributing to this.
It would seem unlikely to me for the various government boards to fully correct this
taxation imbalance without the dissolving of the Village of Albion forcing it upon them. It
saddens me to say this because the village employees appear to do very good work.
However, unless this imbalance is corrected I fear that a further decline of the properties
within the village will occur.
The County of Orleans web site lists the following tax rates for 2008:
Town of Albion (Inside Village): 3.19
Town of Albion (Outside Village): 4.68
Town of Gaines (Inside Village): 4.19
Town of Gaines (Outside Village): 5.22
Orleans County (Inside Village): 9.17
Orleans County (Outside Village): 9.20
Village of Albion: 15.18
Town of Albion (Fire Protection): 1.04
Town of Gaines (Fire Protection): 0.29
As a resident of the Village of Albion the amount that I pay for these taxes APPEAR to be
TWICE that of outside the village. Although I get a few more services that are UNIQUE
to the Village, which is nice and for which I am willing to pay more for (street lighting,
sidewalks, sidewalk plowing, etc), it does not seem to me that I get twice the services as
Appendix F 4
those outside the village. Rather, it seems that village residents are paying multiple
governments for a given service, but only actually receiving it from the village. In effect,
the residents of the Village of Albion are subsidizing the cost of these services for those
outside the village.
Law enforcement within the village is provided by the village police and paid for by our
village taxes, but we seem to get no discount on the county tax for not using the Sheriff
(other than 3 cents). Moreover, it may not be easy to determine what would be a fair
county tax discount to keep the Village of Albion police. If there are more law
enforcement calls per capita inside the village than outside (just a guess - it would be nice
to have some statistics), how should the extra cost to handle this be allocated? I think that
it is only fair if everyone in the county pays the same rate for law enforcement. It would
not be fair to ask any area to pay more for the same level of law enforcement just because
more troublemakers decide to move into that area. On the other had, I would be open to
paying somewhat more for enhanced law enforcement items if it made me safer than
those who chose not to pay more.
I found the CGR documentation to be helpful and I do appreciate that this work was done.
I would suggest however that it may be helpful to go into more detail in the itemization of
budget expenses and to provide more of a breakdown as to which residents benefit from
each item. It would be good to ask the County and Towns to provide this information in
detail. I would be interested in knowing what percentage of the County and Town budgets
are for items that Village residents don't currently benefit from.
Also, the costs that were presented for some Village items were perhaps too closely
mapped to the village budget categories. For example, the cost for the village police was
presented as 20% of the total village budget.
However, this seemed to mostly focus on personnel costs. The costs for patrol cars,
maintenance, fuel, and offices should probably be included in the police category as well.
Also, the budget for the Village Fire Department was given as $65,000 to $79,000. This
would seem to only be enough to cover daily expenses and not capital items (fire trucks) -
is this correct? It would be helpful to know what the full tax rate is including all fire
expenses - both inside the village and outside the village.
In summary, consolidation of services is good - it can help us to be more efficient and to
stabilize our region by making it more economically competitive with the rest of the
country. However, unless we go further to make sure that everyone is paying their fair
share for all services then we risk the continued decline of those areas that are paying
more. I like the Village of Albion, but dissolving its government is probably best for its
people - unless a way can be found for the Towns and County to change course and make
the total tax rates more equal.
