Title
Receive Presentation and Provide Direction on the San Diego County Film Initiative Implementation Plan (Districts: All)
End
Overview
On April 21, 2026 (20), the San Diego County Board of Supervisors (Board) directed the Chief Administrative Officer (CAO) to develop a comprehensive San Diego County Film Initiative centered on the proposed creation of a San Diego County Film Office (Film Office), San Diego County Film Commission (Film Commission), and San Diego County Film and Media Production Rebate Program (Rebate Program). The Board also directed the CAO return to the Board with a detailed San Diego County Film Initiative Implementation Plan for Economic Growth and Job Creation (Implementation Plan).
The Board directed that the Implementation Plan establish a coordinated operational framework for the Film Initiative, including: an organizational and staffing framework; a fiscal framework addressing start-up and ongoing costs, funding sources, and proposed Rebate Program caps; an implementation timeline for a countywide film ordinance, launch of the Film Office, convening of the Film Commission, and phased rollout of the Rebate Program; and performance benchmarks to evaluate economic impact, job creation, and program effectiveness. The Board also directed that development of the Implementation Plan include stakeholder engagement through an advisory work group representing local jurisdictions, industry, labor, educational institutions, workforce entities, arts and cultural organizations, and community groups.
On May 14, 2026, a Request for Quotes was issued to identify a qualified consultant to lead the planning process and prepare the comprehensive Implementation Plan. All submitted proposals underwent a thorough evaluation of relevant experience, technical approach, and cost. Based on this assessment, CVL Economics, an economic consulting firm with expertise in the creative economy, was selected to conduct the planning process and develop the San Diego County Film Initiative Implementation Plan in collaboration with the Office of Economic Development and Government Affairs. CVL Economics began working on this effort on July 8, 2026.
Leveraging research and input from an advisory work group, interviews and a regional survey, with participants representing local jurisdictions and public agencies, producers and crew, labor organizations, education and workforce institutions, tourism and lodging businesses, and arts and community organizations, CVL Economics created the San Diego County Film Initiative Implementation Plan. This plan provides a framework for three components of the Film Initiative:
1. A Regional Film Office to serve as a single regional point of contact for productions, coordinating across jurisdictions and promoting the region as well as administering the Production Rebate Program, tracking metrics and developing annual reports.
2. An Advisory Film Commission to provide regional and industry‑based advisement through a 15‑member body that represents all Supervisorial districts, key jurisdictions, tribal nations, and industry sectors.
3. A $1.5 Million Production Rebate Program that aims to complement California’s Program 4.0, which provides the principal State incentive for eligible film and television productions.
The plan also provides two options for operationalizing these components. In Option A, Nonprofit Model, the County would create a nonprofit entity to serve as the regional film office and administer the Production Rebate Program and the nonprofit’s board of directors serve as the Advisory Film Commission. In Option B, In-House Model, all three components would be administered directly by the County through an embedded film office and with County staff.
Today’s actions request the Board to receive the presentation detailing the Implementation Plan, including the options for operationalizing the plan. The Board is also requested to provide direction on either Option A or Option B and direct the CAO to return back in 90 days with an ordinance formalizing the County’s role in the Film Initiative and provide an update on the status of the selected option.
Body
Recommendation by Chief Administrative Officer:
1) Receive a presentation on the San Diego County Film Initiative Implementation Plan.
2) Receive options for operationalizing the San Diego County Film Initiative Implementation Plan and select one of the following options:
a) Option A Nonprofit Model: Direct the Chief Administrative Officer to operationalize the San Diego County Film Initiative Implementation Plan based on the proposed Nonprofit Model and return back in 90 days with an ordinance formalizing the County’s role in the Film Initiative and an update on the development of the Film Office Nonprofit and Film Commission.
OR
b) Option B In-House Model: Direct the Chief Administrative Officer to operationalize the San Diego County Film Initiative Implementation Plan based on the proposed In-House Model and return back in 90 days with an ordinance formalizing the County’s role in the Film Initiative and an update on the development of the Film Office County Unit and Film Commission.
End
Equity Impact Statement
Film and media production can create economic opportunity across a wide range of occupations and local businesses, but access to production-related careers and contracting opportunities has not been evenly distributed. Receiving the presentation provides the Board with information on a proposed Film Initiative framework that incorporates local workforce participation, small business engagement, transparency, and accountability. These elements can help the County evaluate whether future film-related programs expand access to high-quality jobs and business opportunities across communities.
Sustainability Impact Statement
Presentation of the San Diego County Film Initiative supports the County of San Diego’s efforts to advance long-term economic, social, environmental, and governance sustainability. The proposed framework is intended to coordinate film and media production, connect industry growth with local workforce and business opportunities, establish measurable performance standards, and support responsible production practices. Receiving the presentation allows the Board to consider how these components could contribute to a resilient and inclusive regional economy.
Fiscal Impact
There is no fiscal impact associated with Recommendation 1. For Recommendation 2, funds to establish the Film Office are included in the Fiscal Year 2026-27 Operational Plan in Finance Other based on existing General Purpose Revenue. If approved, Recommendation 2 would result in costs of approximately $500,000 per year. The costs would vary as follows for each option:
• Option A Non-Profit Model: The estimated $500,000 implementation costs for Fiscal Year 2026-27 include a Film Office Manager (1.0 FTE or staff year, $214,500), two part-time coordinators under the non-profit ($99,840), operating expenses ($80,126), entity compliance ($12,000), and start-up, formation and working capital ($93,534).
• Option B In-House Model: The estimated $500,000 implementation costs for Fiscal Year 2026-27 include a Film Office Manager (1.0 FTE or staff year, $214,500), two part-time coordinators (1.0 FTE or staff year, $101,294), operating expenses ($99,708), and start-up and recruitment costs ($84,498).
In both options, there would be additional annual costs of approximately $1,500,000 for the Rebate Program beginning in Fiscal Year 2028-29. Implementation of the Rebate Program would be contingent upon identification of funding and inclusion in future Operational Plans. There is no net change in General Fund cost in the current year.
Business Impact Statement
A comprehensive San Diego County Film Initiative is intended to strengthen the region’s ability to attract and retain film and media production and increase production-related spending across hospitality, construction, transportation, catering, equipment rental, and other local service sectors. The formation of a county film office will contribute towards centralized production support, coordinated permitting, local workforce connections, location promotion and marketing, and development of a performance-based Rebate Program tied to verified local expenditures. These elements are intended to expand opportunities for local businesses while supporting sustained production activity and job growth.
Advisory Board Statement
N/A
Background
San Diego County has long possessed the assets necessary to compete as a premier film and media production destination. Its coastline, deserts, urban environments, military and naval presence, proximity to Los Angeles and Baja California, creative workforce, educational institutions, cultural organizations, and established production history provide significant geographic, logistical, workforce, and cultural advantages. The former San Diego Film Commission operated from the mid-1970s until 2013 and supported decades of production activity in the region.
On November 2, 2021 (12), the San Diego County Board of Supervisors (Board) recognized the economic value of film production and directed the Chief Administrative Officer (CAO) to explore creation of a regional structure. Since July 2022, the Office of Economic Development and Government Affairs (EDGA) has advanced film-related coordination by supporting permitting across County of San Diego (County) departments, facilitating industry inquiries, hosting location tours for production scouts, developing standardized permitting processes, and leading regional film coordination meetings. These efforts helped facilitate production of an Academy Award-winning feature film, One Battle After Another, across multiple San Diego County locations. The production generated nearly $6.8 million in local economic activity, including approximately $3.4 million in local production spending reported by Warner Bros. on lodging, fuel, supplies, and other goods and services.
On April 21, 2026 (20), the Board approved an item entitled, “Launching the San Diego County Film Initiative to Drive Regional Economic Growth and Job Creation.” As part of that action, the Board directed the Chief Administrative Officer to develop a comprehensive San Diego County Film Initiative and return with an Implementation Plan establishing a coordinated operational framework for a Film Office, Film Commission, and Film and Media Production Rebate Program, including developing a centralized operational entity to support this work. The intent of this Initiative is to build off the existing coordination efforts and establish a structured, coordinated framework to create long-term, sustained economic impact to the region.
The Board provided additional directions on the approach and key components of the Implementation Plan, including:
• Requiring stakeholder engagement, including creation of an advisory work group in collaboration with EDGA. The work group was directed to include representatives from local jurisdictions, industry stakeholders, labor partners, educational institutions, workforce entities, arts and cultural organizations, and community groups.
• Detailing organizational and staffing framework, including Film Commission formation, bylaws, a staffing structure within EDGA, and interdepartmental coordination mechanisms.
• Developing a fiscal framework detailing start-up and ongoing operational costs, proposed funding sources, recommended Rebate Program caps, and required future appropriations and revenue.
• Identifying key implementation milestones and establish performance measurement benchmarks and evaluation intervals for economic impact, job creation, and program effectiveness.
On May 14, 2026, the County issued a Request for Quotes to identify a qualified consultant to lead the planning process and prepare the Implementation Plan. Based on their experience, technical approach, and cost, CVL Economics, an independently owned Los Angeles-based economic consulting firm specializing in the creative economy, was selected through this competitive process. Applying its extensive background in screen-sector economic development and film incentive design, CVL Economics conducted research on industry standards and reviewed film office and rebate program models nationwide.
To develop the Implementation Plan, CVL conducted extensive research and collaborated with EDGA as well as representatives including local jurisdictions and public agencies, producers and crew, labor organizations, education and workforce institutions, tourism and lodging businesses, and arts and community organizations.
Feedback was gathered through an advisory workgroup, interviews and a regional survey with 255 respondents. The Implementation Plan addresses the three main components of the San Diego County Film Initiative:
1. Regional Film Office: serves as a single regional point of contact for productions, coordinating across jurisdictions and promoting the region as well as administering the Production Rebate Program, tracking metrics and developing annual reports.
2. Advisory Film Commission: provides regional and industry‑based advisement through a 15‑member body that represents all Supervisorial districts, key jurisdictions, tribal nations, and industry sectors. It reviews priorities, program design, and performance, including annual reports.
3. Production Rebate Program: a $1.5 million reimbursement pool, to be established in year 3 of the Film Initiative, that aims to complement California’s Program 4.0, which provides the principal State incentive for eligible film and television productions.
To operationalize these coordinated components, the Implementation Plan provides two options for the County’s consideration. Option A would establish a regional nonprofit operating under a
County services agreement. Option B would place the Film Office within a County department, with all staff employed by the County. Both options would provide production assistance, support an advisory Film Commission and administer a Production Rebate program, but they would differ in governance, coordination of employment and access to outside funding.
Option A: Nonprofit Model
Regional Film Office
In this approach, the County would create a nonprofit to serve as the regional Film Office and sets its purpose, rules, and oversight. The County would also hire a Film Office Manager to lead the day-to-day work of the nonprofit, including building relationships with cities and agencies and helping and working closely with the nonprofit’s board. The nonprofit entity would hire two part-time (0.5 FTE) coordinators: one coordinator to manage production services and permitting, and one to maintain resources, support marketing and manage the rebate program.
Advisory Film Commission
In Option A, the nonprofit’s board of directors would be considered the film commission. It would consist of 15 seats: Five seats would represent Supervisorial districts, five would represent jurisdictions and tribal governments, and five would represent industry and related organizations. Members would serve three-year terms with a limit of 2 consecutive terms.
Production Rebate Program
The nonprofit would also be responsible for administering a $1.5 million Production Rebate Program, which would launch no earlier than year 3. The rebate would be a direct payment that reimburses a production for a portion of its eligible spending.
The proposed program has two tracks:
• Track 1 supports smaller independent productions with budgets under $1 million, which are completely excluded from California’s Program 4.0. These projects could earn a 25% rebate on verified local spending, up to a $50,000 cap.
• Track 2 supports larger productions that may already qualify for the State credit but still face higher lodging, crew, and travel costs when filming outside Los Angeles. These projects could earn a 10% rebate, or 15% if they hire County residents, with a cap of $250,000.
Together, the two-track structure fills gaps in the State program by helping smaller projects that get no State support and giving larger projects a modest boost where the State credit does not fully cover regional cost differences.
The implementation plan provides a policy framework for the program but clear guidelines, such as what counts as eligible spending, how projects are scored, documentation rules, verification steps, hiring requirements, and audit standards, must be developed and tested before the rebate can launch.
Timeline and Costs
Upon approval, Year 1 of implementing Option A would include developing a County film ordinance formalizing the County’s role in supporting the regional economic impact of the film industry, recruiting a County-employed Film Manager and establishing the nonprofit as a legal entity. In subsequent years, the nonprofit would begin pursuing grants, sponsorships and philanthropic participation, with the goal of launching the Production Rebate Program in Year 3 once the organization is fully prepared.
The total cost for the first year would be approximately $464,000, including startup expenses such as forming the nonprofit, building basic systems, and hiring initial staff. Over time, it is anticipated that County funding can decrease as the nonprofit receives grants, sponsorships, fees, and other support. It is estimated that the five-year operations cost of this model, inclusive of the Production Rebate Program, would be approximately $6.7 million.
Consultant’s Assessment of the Model:
This approach allows the new organization to act as a regional hub without taking over any jurisdiction’s permitting authority. It also lets the nonprofit receive grants, sponsorships, contributions, and fees, giving it more flexibility than a traditional County department. CVL Economics recommends the Option A Nonprofit Model.
Option B: In -House Model
Regional Film Office
Under the in-house model, the County would establish the Film Office as a new internal County unit. All staff, including a Film Office Manager and two 0.5 FTE coordinators, would be County employees. The Film Manager and coordinators would serve the same functions as the roles in Option A. The Film Manager would oversee relationships, services and reporting while the coordinators would support production assistance, permitting, marketing and the rebate program.
Advisory Film Commission
In option B, the Film Commission would need to be created as a separate advisory body established by the Board of Supervisors. The composition of the Commission would remain the same in option B as in A, but the appointments would all be made by the Board of Supervisors. This Commission would serve the same advisory role, but unlike a nonprofit board of directions, it is unable to raise funds.
Production Rebate Program
The County-administered $1.5 million Production Rebate Program would have the same policy framework as discussed in option A. In Option B, the County would need to identify the funds for the program, and County staff would be responsible for developing guidelines and administering the program.
Timeline and Costs
Upon approval, Year 1 of implementing Option B would include developing a County film ordinance formalizing the County’s role in supporting the regional economic impact of the film industry and recruiting the County-employed Film Manager and part-time coordinators. Once fully staffed, the Film Office would work to establish the by-laws and guiding documents for the Film Commission. In addition to developing the program guidelines, the County would need to identify a funding source for the $1.5 million needed for the Production Rebate Program. It is estimated that the five-year operations cost of this model, inclusive of the Production Rebate Program, would be approximately $7.2 million.
Consultant’s Assessment of Model
The model provides the highest level of direct County control but limits the initiative’s flexibility to form partnerships or secure outside funding. Because the Film Office would be housed within County government, other jurisdictions may be more likely to view it as a County-operated service rather than a shared regional entity.
Today’s actions request the Board to receive the presentation detailing the Implementation Plan. The Board is further requested to receive options for operationalizing the San Diego County Film Initiative Implementation Plan and select either Option A the Nonprofit Model or Option B the In-House Model. Should the Board direct the CAO to move forward with Option A, staff will return in 90 days with a proposed ordinance formalizing the County’s role in supporting the regional economic impact of the film industry and an update on the development of the nonprofit film office, including the Board of Directors which would serve as the Film Commission. Conversely, should the Board direct the CAO to move forward with Option B, staff will return in 90 days with a proposed ordinance formalizing the County’s role in supporting the regional economic impact of the film industry and an update on the development of an internal County Film Office and Film Commission.
Linkage To The County Of San Diego Strategic Plan
Today’s action to receive a presentation and recommendations on the San Diego County Film Initiative supports the Economic Prosperity and Operational Excellence Strategic Initiatives in the County of San Diego’s 2026-2031 Strategic Plan by providing a coordinated framework intended to strengthen the region’s creative economy, expand job creation and workforce opportunities, improve operational coordination, and enhance San Diego County’s competitiveness as a film and media production destination.
Respectfully submitted,
Ebony N. Shelton
Chief Administrative Officer
Attachment(s)
Attachment A - San Diego County Film Initiative Implementation Plan