TO: Board of County Commissioner
FROM: John A. Titkanich, Jr., County Administrator
DATE: April 29, 2025
SUBJECT: City of Vero Beach Request for County to Assume Responsibility for Ocean Rescue Operations at City Beach Parks
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BACKGROUND
On October 24, 2023, the City of Vero Beach (COVB) and Indian River County held a joint meeting at the Indian River County Main Library to discuss common interest and opportunities. At that time, the City requested consideration by the County to assume ocean rescue operations at City beach parks. The City renewed its request and staff completed a site and staffing assessment to determine the necessary financial impact of assuming City lifeguard operations consistent with Indian River County hours and standards of operation.
ANALYSIS
Prior to 2001, the County and City of Vero Beach cooperatively managed the Indian River County Recreation Department. The services provided residents with ocean rescue services, recreation programming, the management of Leisure Square, and various other recreation related services. In 2001, staffing changes resulted in a split between City and County services with each local government assuming responsibility for their own areas. At that time, the County Recreation Department provided ocean rescue services at five beach parks including Treasure Shores Beach Park, Golden Sands Beach Park, Wabasso Beach Park, Tracking Station Beach Park, and Round Island Oceanside Beach Park. The City managed ocean rescue at Humiston Beach, Jaycee Beach, and South Beach. In 2008, during the economic downturn, the County eliminated ocean rescue coverage at Treasure Shores Beach Park. Since that time, services at that park have not resumed and the beach park remains open, but unguarded.
Currently, Ocean Rescue Division, managed through the Parks, Recreation, and Conservation Department employs a full-time Beach Operations Supervisor, one full-time Lifeguard II, 8 full-time Lifeguards, and 12 part-time Lifeguards. Service is provided daily, year-round from 9:00am until 5:00pm. The Ocean Rescue Division is currently funded through the Municipal Service Taxing Unit (M.S.T.U.).
The City of Vero Beach provides service at the three city beach parks with a full-time Head Lifeguard, a full-time Lifeguard Lieutenant, 7 full-time Senior Lifeguards, 2 part-time Senior Lifeguards, 1 part-time Lifeguard I, 7 full-time Lifeguards, and 2 part-time year-round Lifeguards, and 9 part-time Casual Open Water Lifeguards. City guarded hours are from 9:00am to 5:00pm and 8:30am to 6:30pm from Memorial Day to Labor Day.
Staff has determined that in order for the County to assume responsibility for Ocean Rescue operations at the City Beach Parks, an additional full-time Beach Operations Lieutenant, 8 additional full-time Lifeguards, 3 additional part-time Lifeguards at 24 hours biweekly, and 3 additional part-time Lifeguards at 48 hours bi-weekly will need to be added to the County’s Ocean Rescue budget at a cost of $837,976. For the existing supervisor positions to be compensated commensurate with the additional workload, the current Supervisor of Beach Operations will be reclassified to a Beach Operations Chief, and the current Lifeguard II position will be reclassified as a Beach Operations Lieutenant at a combined cost of $21,694. Overtime expenses are also anticipated to increase by $56,240 in the first year of operations.
Currently, the County’s Ocean Rescue division is funded through the M.S.T.U. fund. The M.S.T.U. fund receives its revenue from taxpayers whose properties are located within the unincorporated area of the County, whereas the City Beach Park operations are funded solely by City of Vero Beach taxpayers. If the City Beach Park operations were to fall under the County’s Ocean Rescue purview, that division would need to be relocated to the General Fund to properly assess County-wide taxpayers for use of both County and City guarded beaches since they would be combined going forward. The question was raised whether the Emergency Services District could absorb and fund these function in light of the public safety functions performed. While operationally it can be argued the request is meritorious, the question for the Board is it a financially sound decision.
The County inquired if the City of Vero Beach were willing to enter into a contractual arrangement for the provision of these services, and they indicated they preferred and believed it was best the County to assume operations.
BUDGETARY IMPACT
Both operating and capital costs will need to be considered. A lifeguard tower at Humiston Beach will need to be purchased at a cost of approximately $100,000. The additional Beach Operations Lieutenant position will require a truck ($43,826), and two side by side vehicles will be necessary to navigate between the beach parks ($30,000). Operating expenditures will also increase as a result of the additional guarded beaches for a total of $53,760. The total estimated impact to County operations will require additional funding of $1,143,496 in the first year of operations which will commence October 1, 2025, and the costs will compound annually.
Staff does not believe the General Fund can absorb more than $1.1 million in first year operations at this time without a potential millage rate adjustment. The same holds true, even more so for the Emergency Services District, presuming the services (ocean rescue) are consistent with what the voters approved when the district was created. The County is currently engaged in collective bargaining with the IAFF for the newly formed Battalion Chief's unit, and the IAFF rank and file unit's 3-year contract is up for renewal.
Other challenges and concerns exist, primarily the current state of the real estate market and uncertainty in Tallahassee over sales and property tax reforms. Inventory is up, price reductions are being reported, and sales volume is reported down compared to last year.Additionally, in February 2025, it was reported Indian River County ranked 5th among 384 metropolitan area housing markets with the steepest decline year-over-year price decreases. Internally, the County continues to see less building permit activity and is experiencing a reduction in net income by the Building Division, as reported in Q2 Budget Report, year to date net income compared to last year is down 331.7%.
PREVIOUS BOARD ACTIONS
Discussion at Joint-City County Meeting
POTENTIAL FUTURE BOARD ACTIONS
Increasing General Fund or Emergency Services District budgets, combined with unknown sales and property tax reforms, could lead to millage rate adjustments or service reductions.
STRATEGIC PLAN ALIGNMENT
Governance
STAFF RECOMMENDATION
Recommended Action
Staff requests the Board review and consider the information in this agenda report and provide staff direction to the City of Vero Beach's request concerning the County assuming ocean rescue operations at City Beach Parks.