Legislative Analyst's Office

Analysis of the 2001-02 Budget Bill

Department of Forestry and Fire Protection (3540)

The budget proposes $61 million for capital outlay for the Department of Forestry and Fire Protection (DFFP). This amount includes $58 million for 40 major capital outlay projects and $3 million for minor capital outlay projects (less than $500,000 per project) to be funded from the General Fund.

Capital Outlay Program Continues to Be Behind Schedule and Over Budget

We recommend deletion of $2.5 million for 13 projects and withhold recommendation on $55.6 million for 27 projects because of concerns about the ability of the Departments of General Services and Forestry and Fire Protection to undertake the work in the budget year.

Most of the major capital outlay projects in the DFFP's budget were previously proposed in the 2000-01 Governor's Budget but were not approved because of questions about the accuracy of cost estimates and the ability of the Department of General Services (DGS) to complete this increased workload. In order to address these concerns, the Supplemental Report of the 2000-01 Budget Act directed DGS to submit an annual report on its project delivery performance. The first of these reports, received in December 2000, showed that of 304 projects managed by DGS in 1999-00, 187 (62 percent) were behind schedule 30 days or more. About 27 percent of these delays were beyond the control of DGS, such as program or building configuration changes required by the client agencies.

We believe this report illustrates the inherent complexity of the capital outlay process. Given DGS' current workload, we recommend the Legislature not approve capital outlay proposals that impose a new workload on DGS if it cannot be demonstrated that the work can be completed in the budget year.

The DFFP's capital outlay program has had chronic problems relating to inadequate planning, projects exceeding the approved budget, and delays in completing approved projects. As an example, 27 of the 40 projects in the budget were previously approved by the Legislature based on total project costs estimated by DFFP and DGS at $37.8 million. The DGS now estimates these projects will cost $55.4 million, an increase of 47 percent. Also, 46 DFFP projects are among the 187 DGS-managed projects that are 30 days or more behind schedule.

We are concerned that the number of projects proposed in the Governor's budget is more than DFFP and DGS can manage effectively. Accordingly, we withhold recommendation on the projects in Figure 1, pending DGS providing a workload staffing plan showing how it would manage these projects. These are continuing projects which, if DGS can provide information to show it can execute the work in a timely manner, would warrant legislative consideration.

Figure 1

Department of Forestry and Fire Protection
Projects on Which Recommendation Withheld

(In Thousands)
 

Budget Request

Total Project Cost

 
 Project

Phase a

Amount

Previously
Approved

Current
Estimate

  Difference

Relocate Forest Fire Station (FFS)

Bridgeville

W

$101

$1,589

$1,994

$405

Elk Camp

W; C

1,605

1,832

1,832

—

Harts Mill

C

1,323

1,207

1,611

404

Manton

W; C

1,447

1,266

1,638

372

Hesperia

W; C

1,653

1,409

2,146

737

Sonora

W; C

3,012

2,540

3,421

881

Sand Creek

W; C

1,424

1,306

1,702

396

Hammond

C

2,221

1,256

2,594

1,338

Replace FFS

Stevens Creek

W; C

$1,754

$1,036

$1,877

$841

Pacheco

C

1,265

1,145

1,409

264

Nipomo

W; C

1,916

1,427

2,016

589

Rancheria

W; C

1,913

1,460

2,015

555

Blasingame

C

1,108

1,358

1,358

—

Dew Drop

C

1,546

1,798

1,798

—

Ahwahnee

W; C

1,787

1,035

1,837

802

Squaw Valley

C

1,780

2,041

2,041

—

Altaville

C

2,109

2,357

2,357

—

Other Facilities

Santa Clara Ranger Unit Headquarters (RUH): Replace Automotive Shop

W; C

$1,495

$863

$1,535

$672

Aviation Management Unit

A

4,546

—

4,694

—

Lassen-Modoc RUH: Replace Apparatus Building and Automotive Shop

W; C

1,378

1,273

1,552

279

Independence FFS: New Facility

W; C

1,506

1,079

1,720

641

Ventura Youth Conservation Camp: Vehicle Apparatus Building, Shop, Warehouse

W; C

1,515

1,079

1,566

487

San Luis Obispo RUH

C

5,720

6,904

6,904

—

Hemet-Ryan Air Attack Base

C

3,347

3,677

3,677

—

Fenner Canyon Conservation Corps: Vehicle Apparatus Buildings, Replace Office

W; C

2,571

1,747

2,657

910

Owens Valley Conservation Camp: Construct Facility Upgrades

C

1,852

2,116

2,116

—

Baseline Conservation Camp: Remodel Facility

W; C

3,674

3,387

4,506

1,119

Totals

 

$55,568

$52,881

$64,573

$11,692 (22%)

a A = acquisition; W = working drawings; C = construction.

We recommend deletion of the projects shown in Figure 2 because they would impose an additional workload on DFFP and DGS which cannot be accomplished in the budget year. These projects are all "new." Although 11 of the 13 have previously received legislative approval, all are "starting over" with preliminary plans funding requests because of past inaccurate cost estimates or changes of scope. These projects may warrant legislative consideration in future years.

Figure 2

Department of Forestry and Fire Protection
Projects Recommended for Deletion

(In Thousands)
 

Budget Request

Total Project Cost

  

Project

Phase a

Amount

Previously
Approved

Current
Estimate

Difference

Relocate Forest Fire Station (FFS)

Sweetwater

P

$76

$1,162

$1,693

$531

Fortuna

P

89

1,262

2,203

941

Fort Jones

P; W

118

1,238

2,170

932

Weaverville

P; W

146

1,534

2,378

844

Valley Center

P; W

126

1,534

2,026

492

Cuyamaca

A

535

—

2,592

—

Batterson

P; W

70

1,117

2,013

896

Springville

P

79

1,211

1,987

776

Raymond

P

66

1,179

1,637

458

South Operations Area Headquarters

P

803

17,209

17,209

—

Replace FFS

Ukiah

P; W

$163

$2,364

$2,345

-$19

Usona

P; W

120

1,438

1,587

149

Miscellaneous

Buckhorn FFS: Replace Apparatus Building

P

$70

$1,413

$1,413

—

Totals

 

 $2,461 $32,661 $41,253 $6,000
(17 %)

a A = acquisition; P = preliminary plans; W = working drawings.
Return to Capital Outlay Table of Contents, 2001-02 Budget Analysis