WINCHESTER - A committee formed a year ago with a mandate to study ways to streamline government services in Winchester and Frederick County is making progress, according to its leaders.

However, while the group had hoped to complete a final report by this summer, it now seems the process could take at least a year longer, said Mike Foreman, chairman of the steering committee that is overseeing possible government consolidation.

"Once we got into it, we found out how complicated it is," he said. "For example, the legal requirements to unify two school divisions in Virginia is quite different from simply saying on Jan. 1, 2007, the parks and recreation departments of Winchester and Frederick County shall become one."

Initially the steering committee came up with 13 areas to study. As phase one of the project, it appointed subcommittees to consider consolidation of five of those areas - social services, parks and recreation, planning and zoning, schools and fire and rescue.

The subcommittees for social services, parks and recreation and planning and zoning have submitted reports on the results of the study to the steering committee.

"We have accepted them, but we haven't reviewed them or officially adopted them," Foreman said.

The steering committee is still awaiting reports from the subcommittees for schools and fire and rescue. Both of those groups have meetings planned in April and they should submit their reports soon, he said.

During the steering committee's monthly meeting on April 20, members will review the parks and recreation department report and try to put it in a final format. The steering committee will also hold two half-day sessions in May to finish up the first phase of the work.

In either April or May, the steering committee will begin the second phase of the project. It will appoint subcommittees to study the consolidation of constitutional offices, utilities, transportation, public works and purchases and supplies.

The steering committee has also appointed subcommittees to study public input, legal issues and demographics. Those three groups are working during both phases of the consolidation study so they can be available to assist the other subcommittees, Foreman said.

At this point, Foreman said, it seems the groups "have another full year of work" ahead of them. Once the steering committee receives all of the reports, it will analyze them and create one full report that will be submitted to the Frederick County Board of Supervisors and the Winchester City Council.

He said the group may recommend how each of the departments can be consolidated into one, or it may recommend the unification of the two governing bodies into either a city, a county or a hybrid structure.

"Whatever we do, one, it's got to be approved by the voters and only the board of supervisors and city council can request that. Secondly, if we come up with something that is not a city or county, we have to get permission from the Commission on Local Government and then subsequent legislation by the General Assembly authorizing that creation," he said.

The community has been invited to take part in the study process.

A series of four public input sessions was held in recent weeks to solicit opinions regarding phase one. Another round of meetings is planned for the second phase. Rhoda Kriz, chairwoman of the consolidation public input subcommittee, said about 15 people turned out for each of the sessions.

Also, people can serve on the Committee of 100, which is a panel of people who will be asked to address the unification proposals. So far, about 80 people have signed up, Kriz said.

She encourages people to visit the consolidation study's Web site at www.winchester-frederick.com, where they can get information and submit their comments and suggestions. She said people should try to learn the actual impact of any unification, including the benefits and challenges.

"I think the people who came to the meetings are now well informed on what the project is about and what it is trying to accomplish," she said. "The people who are just hearing about it are making emotional decisions and the people who have been to the meetings are making informed decisions. There is a big difference."