CITY COUNCIL AGENDA REPORT
MEETING DATE: 6/18/2024
DEPARTMENT: Management Services
SUBJECT:
APPROVE AN AGREEMENT WITH ALL CITY MANAGEMENT SERVICES, INC.
FOR CROSSING GUARD SERVICES
RECOMMENDED ACTION(S):
1. Approve the Professional Consultant Services Agreement with All City Management Services, Inc. to provide Crossing Guard Services.
2. Authorize the Mayor to sign, and the City Clerk to attest the Agreement with All City Management Services, Inc., substantially in the form attached.
EXECUTIVE SUMMARY:
The City of Lake Forest has provided crossing guard services near public schools throughout the City since incorporation. All City Management Services, Inc. (“ACMS”) has been the provider of those services since 2015. Managing 23 crossing guard stations associated with 8 local schools, in the morning and afternoon during school days. ACMS provides three hours of service per crossing guard station under its current Professional Consulting Services Agreement for Crossing Guard Services (“Current Agreement”) (Attachment 1) which expires on July 8, 2024.
The Request for Proposals (“RFP”) posted for Crossing Guard Services closed on March 13, 2024. A Selection Committee approved by the City Manager reviewed and rated the three proposals received. ACMS was the highest-rated proposal and received positive references (Attachment 4). Staff recommends the City Council approve the attached Professional Consultant Services Agreement with ACMS (“New Agreement”) (Attachment 5). The New Agreement includes a $1,226,145.60 compensation amount for a three-year term with two optional one- year extensions. The New Agreement includes compensation to cover crossing guard services for all 23 of the existing crossing guard stations and compensation to cover the potential addition of a new location or crossing guard station if needed in the future. The proposed New Agreement was prepared by the Finance Department and approved as to form by the City Attorney. The 2023-2025 Operating Budget includes sufficient funding to cover the costs of the recommended action.
BACKGROUND:
The City has contracted for crossing guard services near public schools at various locations throughout the City since incorporation. These services include providing equipped and trained personnel for crossing pedestrians in marked crosswalks, as well as supervisory personnel to ensure crossing guard activities are taking place at the required places and times.
ACMS has been the City’s crossing guard service provider since 2015. The Current Agreement was entered into on July 7, 2020, to provide crossing guard services for a three-year term with ACMS, with a not-to-exceed compensation amount of $858,843 (Attachment 1).
On September 25, 2020, the City Council authorized the First Amendment (Attachment 2), which added a midday shift to the scope of services and increased the not-to-exceed compensation amount to $940,479.66. The midday shift was implemented due to the “hybrid learning model” employed by SVUSD in response to COVID-19.
The Second Amendment (Attachment 3) was authorized by the City Council on June 26, 2023, with a not-to-exceed compensation amount of $1,302,150.06.
Pursuant to the Second Amendment, the Current Agreement is set to expire on July 8, 2024. The Second Amendment removed the midday shift and included additional compensation covering costs for an additional year of crossing guard services, as well as a 23% increase in hourly rates for crossing guard personnel.
While the Second Amendment was approved, the City Council was unsatisfied with the large cost increases included in the amendment. As a result, staff was directed to pursue a competitive procurement to determine market rates for crossing guard services going forward.
Under the Current Agreement, there are 23 crossing guard stations associated with 8 local schools in the morning and afternoon during school days. Each guard provides three hours of service per location, one and a half hours in the morning and one and a half hours in the afternoon. Table 1 lists the 8 schools and 23 crossing guard stations.
Table 1: Crossing Guard locations for Saddleback Valley Unified School District School Site Cross Streets Location
1 Lunette Ave / Torino Dr South/EastFoothill Ranch
Elementary 2 Rue de Fortuna / Fascia Pl South/East
School Site Cross Streets Location
South/East
3 Rue de Fortuna / Bake Pkwy
North/East
4 Los Alisos Blvd / Rockfield Blvd North/East
5 Los Alisos Blvd / Muirlands Blvd North/WestRalph
A. Gates
Elementary 6 Landsview / Rockfield Blvd South/West
7 Ridge Route Dr / Serrano Rd North/West
8 Ridge Route Dr / Serrano Rd South/WestLa Madera
Elementary
9 Ridge Route Dr / Trabuco Rd South/West
10 El Toro Rd / Northcrest Dr North/West
North/East
11 Lake Forest Dr / Pittsford Dr
North/West
12 Pittsford Dr / Charford Way South/West
Lake Forest
Elementary
13 Pittsford Dr / Northcrest Dr North/West
14 Dune Mear Rd / Rockfield Blvd South/WestOlivewood
Elementary 15 Elrond Ln/ Ridge Route Dr North/East
16 Fawn Ridge Rd / Saddleback
Ranch Rd South/East
17 Fawn Ridge Rd/ Saddleback
Ranch Rd North/East
North/East
Portola Hills
Elementary
18 Pendleton Rd / Saddleback
Ranch Rd
South/East
North/EastRancho Canada
Elementary 19 Lake Forest Dr / Trabuco Rd
North/West
School Site Cross Streets Location
North/East
20 Serrano Rd / Winding Way
School side
21 Ridge Route Dr / Jeronimo Rd South/East
22 Ridge Route Dr / Jeronimo Rd North/EastSantiago
Elementary
23 IFOS / Rivendell Dr Across from
school
At the beginning of 2023, the City conducted its biennial community satisfaction survey through an independent third party. The survey asked the community about its satisfaction with the crossing guard services provided. Of those surveyed, 93% said they were very or somewhat satisfied with the service.
In anticipation of the expiration of the Current Agreement for crossing guard services with ACMS on July 8, 2024, staff issued an RFP for Crossing Guard Services on February 7, 2024. The procurement document was posted to OpenGov, the City’s electronic procurement management system.
DISCUSSION:
The RFP for Crossing Guard Services closed on March 13, 2024. Three proposals were received by the following firms:
Table 2: Proposals Received
Organization Location
All City Management Services, Inc. Santa Fe Springs, CA Alltech Industries Inc. Monterey Park, CA
Crossing Guard Services LLC Stamford, CT
Consistent with the City’s Purchasing & Contracting Guidelines (“Purchasing Guidelines”), staff assembled a Selection Committee approved by the City Manager to review the proposals and participate in the interview phase of the selection process. RFP procurements are subject to a qualitative assessment by the Selection Committee and a separate cost analysis by the procurement administrator. Both qualitative factors (experience, proposed approach to complete the work, etc.) and cost represent components of the final score assigned to each proposer. The Selection Committee was comprised of the following staff:
•Deputy City Manager
•Traffic Engineering Manager, Public Works Department
•Management Analyst, Management Services Department
The proposal review process was comprised of three phases: the Technical Review of written proposals, the Qualifications Interview Phase, and the cost proposal evaluation. The RFP received interest from three firms that downloaded all the files associated with the procurement and submitted proposals through the OpenGov procurement system.
A firm must receive an average score of 60% (or higher) in the Technical Review phase to move on to the Qualifications Interview phase. All three firms received the minimum scoring required from the combined reviews of the technical proposals illustrated in Table 3 below, and the City invited the firms to the Qualifications Interview phase of the selection process to discuss their respective approach to the requested services. Interviews were held virtually on April 9, 2024.
Table 3: Vendor Technical Review
Vendor Evaluator
1 Evaluator
2 Evaluator
3 Total Avg.
Score
All City Management
Services, Inc.
90.5 94 79 87.83
Alltech Industries Inc. 85 49.5 81 71.83
Crossing Guard Services
LLC
58 64 64.5 62.17
Following the Qualifications Interviews and subsequent scoring by the Selection Committee, the Contract Administrator reviewed the cost proposals. The total scores of each vendor based on the Technical Review, Qualifications Interview, and Cost Scoring phases are shown in Table 4 below.
Table 4: Vendor Aggregate Scoring
Vendor Evaluator
1 Evaluator
2 Evaluator
3 Total Avg.
Score
All City Management
Services, Inc.
174 189.2 185.2 182.8
Alltech Industries Inc. 151.8 126.2 138.2 138.73
Crossing Guard Services
LLC
146.4 123.2 131.2 133.6
*Max Score 200
Throughout the RFP process, ACMS demonstrated an excellent understanding of the City’s needs. ACMS presented detailed training and management plans with checklists and highly organized communication protocols, which assured staff that ACMS was thoroughly prepared to implement the Scope of Work if selected. ACMS has extensive experience providing crossing guard services in Orange County, a unique familiarity with the Southern California labor market, and knowledge of school district operations in the area. As a result, the Selection Committee concluded that ACMS is the “most qualified” contractor to provide crossing guard services, considering all factors, including cost.
While the proposal submitted by Crossing Guard Services LLN (“CGS”) included competitive pricing, the firm had no experience in California and was unable to confidently communicate how they would rollout a completely new crossing guard service here in Lake Forest. Staff were also concerned about the lack of detail provided about personnel assigned by CGS to the project.
Alltech Industries Inc. (“Alltech”) also submitted a competitively priced proposal but had limited references for similar crossing guard service rollouts in the area.
Alltech’s expertise seemed to be more focused on security guard services rather than crossing guard services. Based on these factors, and the important operational and legal needs related to the crossing guard service, staff felt ACMS was the best vendor able to provide reliable crossing guard services that residents and students could count on.
Upon conclusion of the Qualifications Interview process, all proposers had the opportunity to submit a revised cost proposal. ACMS submitted a revised cost proposal. Table 5 below includes the cost proposals received on an hourly-rate basis.
Table 5: Cost Proposals (Per-Hour Price for Crossing Guards) Firm FY 24-25 FY 25-26 FY 26-27
All City Management Services, Inc. $31.53 $33.60 $35.72 Alltech Industries Inc. $27.51 $28.79 $30.08
Crossing Guard Services LLC $28.80 $29.60 $30.40
Although Alltech Industries Inc. submitted the lowest hourly rates, they received comparably lower overall scores relative to ACMS. It was clear to the Selection Committee that ACMS had the most thorough understanding of the sites, school district operations, and State laws. ACMS has provided services to Lake Forest since 2015 with an outstanding work record.
Staff met with ACMS on April 23, 2024, to negotiate the hourly rates submitted.
On April 24, 2024, ACMS responded with a revised cost proposal, which lowered the total compensation amount of the New Agreement by $80,870.40.
The revised cost proposal from ACMS included hourly rates which included a reduction of 3.8% for FY 2024-25, 6.1% for FY 2025-26, and 8.3% for FY 2026- 27 when compared to the rates originally proposed. A comparison of the prior proposed rates and of negotiated hourly rates is provided in Table 6 below.
Table 6 also includes annual amounts for the 23 crossing guard stations as well as the option for an additional site.
Table 6: ACMS Final Cost Proposal and Total Compensation Amount, Per Year Agreement
Year Services
Proposed
Hourly
Rate
Negotiated
Hourly
Rate
Revised Cost
Proposal Not-To-
Exceed
Compensation
2024-25
23 Crossing Guard
Stations $31.53 $30.31 $376,450.20
2024-25
Optional
Services/Additional
School Site
$31.53 $30.31 $16,367.40
2025-26 23 Crossing Guard
Stations $33.60 $31.52 $391,478.40
2025-26
Optional
Services/Additional
School Site
$33.60 $31.52 $17,020.80
2026-27 23 Crossing Guard
Stations $35.72 $32.75 $407,127.60
2026-27
Optional
Services/Additional
School Site
$35.72 $32.75 $17,701.20
Total Not-To-Exceed Agreement Amount $1,226,145.60
Staff recommends the City Council approve the proposed New Agreement for Crossing Guard Services with All City Management Services, Inc. The New Agreement includes the original 23 crossing guard stations and the option for an additional site or station, should the need arise during the contract term. The New Agreement includes a compensation amount of up to $1,226,145.60 and a three- year term with two optional one-year extensions (Attachment 4). The Agreement has been prepared by the Finance Department. The City Attorney has reviewed the New Agreement and approved it as to form.
FISCAL IMPACT:
The proposed New Agreement with All City Management Services, Inc. includes a total compensation amount up to $1,226,145.60 and a three-year term with two optional one-year extensions. The 2023-2025 Operating Budget includes sufficient funding to cover the costs of the recommended action.
ATTACHMENTS:
1. Professional Consultant Services Agreement with ACMS (Current Agreement)
2. First Amendment to Current Agreement with ACMS
3. Second Amendment to Current Agreement with ACMS
4. ACMS References
5. Proposed Professional Consultant Services Agreement with ACMS (New Agreement)
Initiated By: Nicole Houston, Management Analyst
Submitted By: Sean McGovern, Deputy City Manager
Approved By: Debra Rose, City Manager