Editor's note: Click here to read the response from JCPL.

The Jefferson County Board of Commissioners meeting on June 17 concerning the library system's request for the formation of a library district is quickly approaching. We thought it would be helpful to the Jefferson County citizens, taxpayers and library users to hear the concerns of the county regarding the library's proposed separation from the county government and the financial and service implications. The concerns focus primarily on the increased cost and associated negative impacts to county operations.

More Cost to Employees
The library has indicated a projected annual savings of $540,000 if the library were to become a separate library district. However, approximately $340,000 of the estimated savings are achieved through operational changes that could be implemented while continuing to remain part of the county, and are not savings inherent to the formation of a district. In addition, the largest cost-saving measures will come from cuts in salary and benefits to current and future library employees.

More Cost to the Jefferson County Taxpayer
If the library were to leave the county system and form a separate district, approximately $510,000 in administrative expense and infrastructure costs will have to be redistributed to all other county elected offices and departments. These include the Sheriff's Office, District Attorney, Human Services, Road & Bridge, Planning & Zoning, etc. The consequences would be that these departments may then have to cut their services to make up for that added cost, or request additional funding to meet the current service demands.

At first blush, one naturally assumes that by having fewer employees, those administrative costs should go down. They will, but not by the magnitude that would be required to make the move cost neutral. It's simply a matter of economies of scale. We see this phenomenon in other areas of county government. For example, it's marginally cheaper to run the jail when housing fewer prisoners than capacity, but the reductions are not in direct correlation to the number of inmates. Keeping the jail staffed and the lights on is necessary even if the inmate population fluctuates. A similar problem would exist if the library leaves county government with regard to support services like Information Technology, Payroll, Human Resources, etc., the county will continue to own, operate and maintain a large financial system capable of providing those services to the library even if the library is no longer using those services. Therefore, the taxpayers will be asked to pay for the district to acquire some of the same services that they already pay the county to provide.

Library Funds Possibly not Used for Library in Current IGA
In the event of a formation of a separate district, Westminster would require the library district to enter into an Intergovernmental Agreement (IGA) that the library negotiated with the City of Westminster. An IGA is a contract between governmental entities that lays out the foundation and details of the agreement. Since Westminster straddles the two counties of Adams and Jefferson and is the only municipality in Jefferson County that offers its own library service, the library is required to enter into an IGA to provide services to that municipality once the district is formed.

There are several points within the draft IGA that are of concern to the county in making sure that the interest of the taxpayers of Jefferson County are protected:

• The draft IGA states that the separate library district will be required to make annual revenue sharing payments of $500,000 to Westminster that may be used only for library purposes. The amount of the payment adjusts over time, most likely upward, according to formulae in the agreement.
• • The IGA does not require that those funds be used only for library services in Jefferson County. They could instead go to Westminster libraries in Adams County.
  • It does not require that Westminster use the $500,000 in addition to existing funds already spent by the city on library services. Westminster's documents associated with the IGA reflect Westminster's intent to use the $500,000 payment to offset its current costs to provide municipal library services rather than to provide additional library services.
• The IGA will continue in perpetuity as long as there is a Library District, even if Westminster no longer provides library service in Jefferson County, and can only be cancelled by Westminster.

District Would Hurt Jeffco's Ability to Respond to Emergencies or Crises
Proponents for the formation of a Library District worry that the library's funds could be diverted by the county for non-library purposes if it remains part of the county. We understand the library's concern from that limited perspective. However, we are also of the opinion that maintaining that funding flexibility is in the best overall interests of all Jefferson County citizens. For example, in the unfortunate event of a man-made or natural disaster, the county may need to temporarily divert funds from wherever necessary to address more pressing life, health and safety needs of Jefferson County citizens. Conversely, in years past, when funds were available and the library requested, the county provided additional funding to the library beyond its mill levy.

Already Operating Successfully
The Jefferson County Library System has operated very successfully as a relatively independent unit of Jefferson County government for the past 56 years. The county library system currently is governed by a Library Board of Trustees, and under this arrangement has excelled to the point where it is noted as being one of the best in the nation. Last year alone, more than 2.7 million people visited the ten libraries, the bookmobile and traveling children's library. The county library has won nearly 20 awards for service and outstanding achievement.

Library Autonomy - a Liability to Jefferson County
Proponents of the library district believe that separation from the county government will free the library from the uncertainty of the general county government funding and allow it to save money and operate more efficiently. In reality, being part of the larger county government has been a financial boon to the library, enabling it to build libraries through contributions from the county's general fund with dollars above and beyond the library mill levy dedicated to library services.

Two examples are the $1.2 million in county general fund revenues that were given by the Board of County Commissioners in 1995 to help finance the remodel of the former Golden Recreation Center into the Golden Library; and more recently, in 2004, the $1 million contribution in general county funds by the County Commissioners that enabled the building of a new library in Olde Town Arvada.

Further, by statute, the Board of Trustees of the Jefferson County Public Library enjoys unbridled authority to manage and control the library, and has exclusive control over spending of all library funds appropriated to them by the Board of County Commissioners. Nothing prohibits the Board of Trustees of the County Library from making any improvements to libraries or library services that it sees fit. A library district would have no additional operational authority or flexibility.

In closing, while we understand the library's desire for independence and autonomy, creating another government to provide library services, when the services already provided are second to none, just doesn't make sense. And while we appreciate the position of our friends and colleagues at the library, we believe they are wrong in their assertion that services will be enhanced and overall costs to taxpayers reduced if a district is formed. In fact, we believe just the opposite is true. But perhaps the most compelling reason for letting the library remain in its current governance structure is just this simple, "if it ain't broke, don't fix it." We are proud of the library services provided to our citizens. Let's not mess with success.

If you would like to make a comment about any of these points, please join us at the Library District Public Hearing on June 17 at 5:30 p.m. in Hearing Room One at the Jefferson County Administration and Courts Facility. Comments also may be made to the BCC through email at commish@jeffco.us or mailed to 100 Jefferson Parkway, Golden, CO 80419.

Respectfully,

Jim Moore, Jefferson County Administrator,
Ellen Wakeman, Acting Jefferson County Attorney