Agenda 02/22/2022 Item #11C (Resolution Regarding FY23 Tentative Budgets)02/22/2022
EXECUTIVE SUMMARY
Recommendation to Adopt the FY 2023 Budget Policy.
OBJECTIVE: That the Board of County Commissioners (Board) adopt policies to be used in
developing the Collier County Government budget for FY 2023.
CONSIDERATIONS: For staff to begin preparation of the FY 2023 budget, direction is needed from
the Board on major policy issues.
Attached to this Executive Summary is a listing of pertinent policy issues that will affect preparation of
the FY 2023 budget. The budget policy document is broken down into three distinct elements. The first
consists of budget policies proposed in FY 2023 that require policy direction from the Board. The second
element consists of routine budget policies that the Board has endorsed for several consecutive fiscal
years. The third element consists of a three-year analysis of the General Fund (001) and the
Unincorporated Area General Fund (111). Establishing broad goals to guide governmental decision
makers is the first of four budget process principles developed by the National Advisory Council on State
and Local Budgeting (NACSLB) and endorsed by the Governmental Finance Officers Association
(GFOA).
The Board needs to establish June budget workshop dates. Tentative dates are Thursday, June 16, 2022
and if necessary, Friday, June 17, 2022 with meeting times scheduled from 9:00 a.m. to 5:00 p.m. The
Florida Association of Counties annual conference is scheduled for June 28th through June 30th, 2022 in
Orlando.
For informational purposes, adoption of the maximum tentative millage rates is scheduled for Tuesday,
July 12, 2022. The Board is required by Florida Statutes to provide the Property Appraiser with the
proposed millage rates within 35 days of taxable value certification which is generally on or around
August 4, 2022 to prepare the Notice of Proposed Property Taxes.
Finally, the Board needs to establish September public hearing dates for the adoption of the FY 2023
budget. The School Board has tentatively scheduled Monday, September 12th, 2022 for their final budget
hearing and the County hearings cannot conflict with School Board hearings. Recommended dates for the
Collier County budget public hearings are Thursday, September 8, 2022 and Thursday, September 22,
2022, both at 5:05 p.m.
FISCAL IMPACT: The adopted policies will serve as the framework for the development of budget and
ad valorem taxation issues for FY 2023.
GROWTH MANAGEMENT IMPACT: There is no Growth Management impact.
LEGAL CONSIDERATIONS: The County Attorney has approved this item as to form and legality.
Majority support is required for Board approval. - JAK
RECOMMENDATION: That the Board adopts budget policies as detailed in the attachments to this
Executive Summary, establishes June budget workshop dates and September public hearing dates. In
addition, the Board needs to adopt the attached Resolution establishing a May 1, 2022 deadline for the
Supervisor of Elections, the Sheriff’s Office, and the Clerk’s budget submittals.
PREPARED BY: Mark Isackson, County Manager
ATTACHMENT(S)
1. Fiscal Year 2023 Recommended Budget Policies(DOCX)
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2. FY23 Budget Policy (PPTX)
3. Resolution FY 2023 Budget Policy and Constitutionals-signed (PDF)
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COLLIER COUNTY
Board of County Commissioners
Item Number: 11.C
Doc ID: 21310
Item Summary: Recommendation to adopt the FY2023 Budget Policy. (Mark Isackson, County
Manager)
Meeting Date: 02/22/2022
Prepared by:
Title: – Office of Management and Budget
Name: Debra Windsor
02/16/2022 1:17 PM
Submitted by:
Title: Director - Facilities Maangement – Facilities Management
Name: Ed Finn
02/16/2022 1:17 PM
Approved By:
Review:
Office of Management and Budget Geoffrey Willig Level 3 OMB Gatekeeper Review Skipped 02/16/2022 10:52 AM
Facilities Management Geoffrey Willig Additional Reviewer Skipped 02/16/2022 10:52 AM
County Attorney's Office Jeffrey A. Klatzkow Level 3 County Attorney's Office Review Completed 02/16/2022 2:21 PM
County Manager's Office Mark Isackson Level 4 County Manager Review Completed 02/16/2022 2:31 PM
Board of County Commissioners Geoffrey Willig Meeting Pending 02/22/2022 9:00 AM
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Policy Document Page 1
Fiscal Year 2023
Recommended Budget Policies
Collier County Board of County Commissioners
February 22, 2022
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Table of Contents
Section Pages
1. Overview and General Budget Planning 3 to 8
2. General FY 2023 Budget Planning – Significant Influences 8 to 12
3. FY 2023 General Governmental Initiatives 12 to 14
4. Taxable Value and Tax Rate Discussion 14 to 16
5. Conservation Collier 16 to 17
6. Summary of FY 2023 Budget Strategies 17 to 21
7. County Grant Funding/Cares Funding 21 to 22
8. Local Option Infrastructure Sales Tax 22
9. Long Term Capital and Infrastructure Maintenance Reserve 22
10. General Governmental Capital Asset Management 22 to 26
11. Gas Taxes; Use of Gas Taxes and Gas Tax Pledged Debt 26 to 27
12. Youth Relations Officer Program 27
13. General State Legislative Update 28
14. General Fund Allocation by Agency/Department 28 to 29
15. Millage Rate Targets for MSTU’s 29 to 30
16. Revenue Centric Budgets 30
17. Expanded Positions and Programs 31
18. Compensation Administration 31 to 32
19. Health Insurance 32 to 33
20. Retirement Rates and Accrued Salary Savings 33 to 34
21. Financing New and Replacement Capital Infrastructure 34 to 36
22. Storm-Water Management Funding 36
23. General Fund Capital/Debt Service Contribution and Debt Mgmt. 36 to 38
24. General Governmental; Enterprise Fund and Other Reserve Policies 38 to 44
25. CPI Based Enterprise Fee Adjustments 44
26. Suggested Scheduling Timeline 45
27. Florida Counties used for Comparative Budget Data 45
28. Regular Routine Budget Policies for FY 2023 46 to 48
29. Three Year Budget Projections – General Fund 49 to 55
30. Three Year Budget Projections – Unincorporated Area GF 56 to 59
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Overview and General Budget Planning
Historically, the annual budget policy approved by the Board of County Commissioners
(Board), has consisted of three (3) sections which are “annual budget policies to be adopted”,
“continuing budget policies to be reaffirmed” and a “three-year forecast for the General Fund
and the Unincorporated Area General Fund”. Recommended policies are highlighted in gray on
policy document pages 26 and 27; 29 thru 34; 36; and 38 thru 45. While it is suggested that this
format continue, the policy document will also cover significant budget influences and discuss
the strategies which may be utilized to address these influences as the budget document and
budget planning evolves for FY 2023 and beyond.
The COVID pandemic began in February 2020 and now variants of the COVID virus have
presented from Delta to Omicron and these variants while negatively impacting certain regions
of the U.S. economy in general, have not had a negative impact on the Southwest Florida
Regional Economy and specifically Collier County.
Taxable value county-wide has increased for the tenth (10) consecutive year and is expected to
increase once again for the 2022 (FY 2023) tax year. Major general governmental revenue
sources like sales tax, state shared revenues, gas t axes and the local option infrastructure sales
tax all exceeded forecast for FY 2021 and are trending higher over budget in FY 2022.
• New construction permitting remains strong and is consistent with seasonal averages
over the past two years, despite the presence of COVID variants as well as supply
shortages. Most of the new permits issued are for one-and two-family residential units.
For calendar year 2021, new construction permitting has averaged 365 permits per
month, which is far above the 2020 calendar year monthly average of 262 permits.
• New home sales activity and pricing remain seasonally strong. While lower inventory
drove a decrease in single-family home sales year over year from November 2020 to
November 2021, median home prices soared from $550K in November 2020 to $659K
in November 2021.
• Collier County’s unemployment rate was 3.4% in November 2021, down 1.0% from
November 2020. The State of Florida and United States unemployment rate was 4.5%
and 4.2% respectively in November 2021. Unemployment rates should continue to drop
incrementally as workers return to the work force.
• Visitation to the destination for December 2021 totaled 120,100, which is consistent
with the December 2019 pre-pandemic visitation for the month of 122,600 and higher
than the December 2020 monthly visitation number of 112,300. Calendar year visitation
for 2021 of 1.58 million is on par with 2019 calendar year visitation of 1.61 and much
higher than the 2020 figure of 1.08 million. Direct spending for the 2021 period totaled
$1.67 billion which is modestly above the pre-pandemic 2019 year by $171 million.
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As we usher in calendar 2022, all economic matrixes point to a healthy economic environment
with employment increasing, restaurant and hospitality businesses continuing to rebound, major
employers including Collier County continuing to exhibit strong balance sheets and local
government sales tax, gas tax and state shared revenues remaining strong. Senior leadership
regularly evaluates all economic indicators, and the organization is always positioned to
respond, if necessary, to any softening of economic conditions.
The County is positioned to structure and issue strategic general governmental and enterprise
debt for capital projects while borrowing costs remain low upon recommendation by the Finance
Committee. Projects like general governmental facilities including the government operations
business park; and phase two of the eastern expansion of the County’s public utility system will
likely require some form of financing during FY 2023 and FY 2024.
The Budget as a Tactical Financial Tool and Strategic Policy Model
The annual budget document is considered a single use tactical financial plan which appropriates
dollars toward one-year initiatives, activities, and projects in furtherance of longer-term policy
objectives. This tactical budgetary plan begins with an examination of annual budget policies
which describe in detail the tactical issues to be funded. While the budget is a tactical tool,
components of the budget also program dollars strategically. Reserves designated for future asset
maintenance and replacement, vehicle and equipment replacement, natural disasters and
unforeseen risks are considered critical strategic positions and emphasize the need for careful
resource allocation among competing short term and long-term funding priorities.
As the County’s general governmental and enterprise capital assets grow, repeatedly resourcing
long-term asset maintenance and replacement becomes increasingly important.
For FY 2022, $706.1 million or 23.2% of the County’s $2.4 billion gross budget represented
county-wide enterprise and general governmental capital projects and capital reserves. Planning
numbers for FY 2023 within the General Fund allocate $72.3 million or 12.6% of the
recommended $574.3 spending plan toward capital initiatives including projects, debt repayment
and capital reserves.
General Governmental Revenues – FY 2021
Fiscal year ending matrixes point to strong general governmental receipts despite continued
COVID variants impacts. The County’s General Fund cash position remains healthy within policy
guidelines consistent with a stable highly rated investment quality municipal entity as determined
by all three major rating agencies. The following is a discussion of major general governmental
revenue sources.
Local regular half cent sales tax revenue is the largest non-property tax general governmental
revenue source and is deposited monthly in the General Fund. FY 2021 collections were
significantly higher than both FY 2020 collections and pre-COVID FY 2019 collections by 23%
and 12% respectively. The County received $49,549,522 in FY 2019, $45,227,690 in FY 2020 and
$55,732,311 in FY 2021. Under a normal revenue cycle, without the effects of COVID, FY 2020
revenue would likely have increased 5% or more over FY 2019. So, FY 2021 collections of $55.7
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million represent a return to normalcy. The following graph depicts the FY 2020 versus FY 2019
relationship in collections by month.
Regular half cent sales tax collections budgeted for FY 2022 are very conservative at $41,000,000.
Budgeted collections for FY 2022 total $41,000,000 which are in line with State estimates at
$42,240,400.
State revenue sharing is yet another key general government revenue source deposited in the
General Fund and the impact due to COVID is like regular sales tax revenue and a return to
normalcy is forecast. This revenue source has stabilized, and FY 2022 conservative budget
estimates total $11,000,000. State estimates for FY 2022 total $14,001,000.
Aggregate special revenue gas taxes have remained consistent with minimal impacts due to
COVID. Actual receipts for FY 2021 are in line with pre-COVID levels at $22,919,700.
Gas tax revenue received in FY 2020 totaled $21,004,900 which was a drop of $1,703,900 from
the FY 2019 total of $22,708,800. For FY 2022, gas tax revenue is budgeted conservatively at
$22,500,000 which is in line with state estimates of $23,094,400.
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Actual Tourist development tax collections during the COVID pandemic fiscal year of 2020
dropped to $26 million from $31.6 million in FY 2019. Collections in FY 2021 recovered nicely
to $36.2 million in FY 2021, and it is expected that collections for FY 2022 will keep pace with
FY 2021. Actual year to date collections through December 2021 exceed budget by $2.3 million.
In September 2020 Fitches rating on the County’s TDT bonds remain unchanged and the outlook
was modified to stable from negative.
Natural Disaster Planning
Since landfall of Hurricane Irma in September 2017, the County has put forth significant effort
and resources in a continuing effort to harden critical public safety and utility infrastructure.
Financially, the County is always prepared to cash flow and expend appropriated dollars to restore
the community from any natural disaster and County leadership remains committed to a value-
added coordinated emergency management approach which coalesces all County Agencies and
external District partners as future natural disasters threaten Collier County.
As a reminder, to cash flow a natural disaster, three specific budget techniques are utilized. First,
in funds where enough cash balance exists, FEMA revenue is budgeted, and corresponding
expense budget appropriated anticipating some level of reimbursement in the coming
months/years. Note that there is no cash behind budgeting FEMA revenue. Existing and routine
incoming fund revenue is relied upon until the receipt of any FEMA deposits. Second, existing
capital project budgets are reviewed and re-allocated were appropriate. Third, general
governmental and enterprise reserves are drawn down in appropriate and prudent amounts.
For perspective, as of January 2022, the County has spent $115.2 million recovering from
Hurricane Irma. The County has received $98.1 million in reimbursement revenue consisting of
$72.9 million in FEMA reimbursement and $25.2 million in insurance reimbursements. Net cost
to the County for the natural disaster totals $17.1 million. The County can expect in the future to
front substantial resources recovering from a major natural disaster for 18-24 months before any
$0
$500,000
$1,000,000
$1,500,000
$2,000,000
$2,500,000
Oct Nov Dec Jan Feb Mar Apr May Jun Jul Aug Sept
Gas Tax Revenues
2019 2020 2021
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reimbursement revenue is received. Debris removal is the most expensive community restoration
component generally accounting for 60% to 65% of all recovery costs.
General Budget Planning
The FY 2023 budget plan will allocate funding for recurring operational expenses albeit limited
and continue funding for replacement capital infrastructure and maintenance as well as new capital
initiatives not funded through the local option infrastructure sales tax. A shift from an emphasis
on operations to capital planning, programming, and implementation continues and the FY 2023
budget will reflect this emphasis. Capital and operational programming continue to compete for
limited resources which always is a pressure point as appropriation decisions are made for the
General Fund (001) and Unincorporated Area General Fund (111). That said, the budget document
must continue to remain flexible - a key component of the budget management process and widely
recognized by those agencies who are consumers of the County’s budget data and offer financial
ratings of our agency.
The budget as a flexible financial planning document will be subject to many changes in FY
2023 with several financial variables yet to be determined, including.
• Tax policy decisions by the Board will determine the level of budget flexibility and the
specific resource allocation for operations and capital transfers; the level of reserve
programmed, and payment of debt will not be affected by the Board’s tax policy decision.
• While issuance of debt is not programmed within the adopted budget, the budget will be
positioned for amendment during any fiscal year to allow for financing projects like
public utilities expansion to service eastern lands development; government facilities
improvements and relocation like the government operations business park project; and
other policy initiatives as directed by the Board.
• Extent of additional gap funding to complete future construction phases of the Paradise
Coast Sports Complex like baseball fields and the fieldhouse.
• Board policy decision to fund Mile Marker 63 fire and rescue operations (within the
Ochopee Fire and Rescue MSTU) should the State budget not include funding in any
fiscal year. Discussions still ongoing between the County and Greater Naples Fire
regarding the process, timeline, and any further subsidy to complete annexation of the
Ochopee fire and rescue district which is funded through an MSTU and a General Fund
contribution acknowledging the preponderance of state and federal lands within the
district.
• Planning for recurring general governmental industry standard funding to maintain
storm-water infrastructure; continue a “pay as you go” capital component and payment
of debt service all totaling $15.8 million which is on par with the FY 2022 appropriation
from the General Fund and Unincorporated Area General Fund.
• Funding to implement a complete structural adjustment to the County’s classification
and compensation plan as recommended by Evergreen Solutions, the County’s
consultant, which will bring the County into a much greater competitive position in the
municipal and private market plus address the disparity compensation relative to the rise
in general cost of living within the County and southwest Florida.
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• Board policy guidance on issues like workforce and first responder housing; mental
health programming; continued development of the Golden Gate Golf Course property;
Hussey property improvements; Camp Keais property development; and any operational
implications to Community Priorities funded by the voter approved local option
infrastructure sales tax.
• Existing taxable value dependent support of economic development innovation zones
and CRA tax increments.
• Board directed funding for arts and culture.
• Level of capital and operational funding connected with strategic relocation of various
governmental functions on the main campus, including implications from community
priorities funded by the local option infrastructure sales tax like constructing the mental
health facility; costs connected with back-office infrastructure replacement like the
management and accounting system, and information technology system upgrades.
• Government Operations Business Park (GOBP) phased funding.
• Level of General Fund transfer support to the constitutional officers and specifically the
Sheriff.
• Capital funding requests documented by the Sheriff, including a new helicopter,
evidence storage and support operations facility at the Government Operations Business
Park, and Caxambas boat launch.
• Amount of General Fund dollars if any required to backfill the impact fee trust funds due
to continued State Legislation restricting the use of general governmental impact fees
and/or insufficient impact fee collections.
Annual Budget Policies
Significant Budget Influences:
Each fiscal year based upon conservative budgetary guidance, limited resources are allocated to
competing services, programs, projects, and capital initiatives. Within the pyramid of service and
program delivery, significant resources have and will continue to be devoted to public safety,
public health, debt management and replacement of priority mission critical infrastructure and
equipment. Property (ad valorem) taxes will once again dominate the County’s budgetary revenue
mix which for FY 2022 comprise about 42% of total net recurring annual operating revenue and
67% of General Fund recurring revenue sources. Seventy-six (76%) of General Fund revenue is
comprised of property taxes, sales tax, and state shared revenue (percentages do not include
revenue reserve).
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Eighty percent of all levied property taxes by Collier County Government are deposited into the
General Fund and forty eight percent of those collections including state required Board paid
components support constitutional officer operations, including the Sheriff.
Thus, significant attention is paid to property (ad valorem) taxes and those factors that can
influence millage rate and tax levy decisions. The decision to develop the FY 2023 budget around
the rolled back rate, millage neutral rate or other rate is a key decision made by the Board and this
decision will determine the level and extent of operational, capital, and constitutional funding.
Under millage neutral policy guidance applied to the tax base planning scenario projected to
increase 3.5%, the FY 2023 General Fund planning levy will increase $12,787,800 over the FY
2022 adopted levy. As county-wide base taxable value increases and that increase begins to slow,
the state calculation for determining the rolled back rate which is influenced directly by tax
increment district valuations and the amount of tax increment dollars contributed to these districts
creates a scenario where the rolled back rate becomes close to or is greater than the County’s long
standing millage neutral rate of $3.5645. The following points are noteworthy in considering
general governmental tax policy for FY 2023.
• The County’s current General Fund millage rate of $3.5645 has been levied for the past thirteen
(13) years or since FY 2010. During the recession when taxable value dropped some $24
billion, this millage rate adopted by the BCC pursuant to policy required General Fund budget
Ad Valorem
42%Gas/Sales Tax
7%
Infrastructure
Sales Tax
8%
Permits/
Assessments/
Fines
7%
Intergov'tal
Revenues
2%
Service Charges
27%Impact Fees
5%
Bond
Proceeds/
Interest
2%
Sources of Current County Government
Operating Revenues all Funds (FY 2022)
Ad Valorem
67%
Sales Tax
7%
State Revenue
Sharing
2%Intergov'tal
Revenues
0%
Fines,
Permits,
Charges
3%
Interest &
Misc.
1%
Carryforward
17%
Interfund
Transfers and
Payments
2%
Transfers from
Consitutional
Officers
1%
FY 2022 General Fund Revenue Sources
General Fund
80%
MSTU's 8%
Pollution
Control 1%
Unincorporated
Area General
Fund 11%
Property Tax by Major Funds
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reductions totaling $123 million between FY 2009 and FY 2013. Conversely, keeping the
millage rate neutral since FY 2014 when taxable value began increasing has allowed the
County to raise $140 plus million in additional dollars above the rolled back rate to fund general
governmental capital and operating programs cut or postponed during the recession, restore
levels of service deemed important by the BCC as part of annual budget guidance , establish a
long term capital maintenance reserve, participate in various strategic economic development
agreements, purchase strategic property and related development and, pursue strategic
location/relocation of certain County facilities to closely align with expanding eastern
population while simultaneously updating/replacing these facilities.
• Relying on the rolled back rate as a measure of tax relief can be problematic when the economy
softens, and taxable value increases begin to slow or decrease. The concern is not year one of
levying the rolled back rate, it is the cumulative effect should the Board decide that rolled back
rate is the new normal; or the rolled back rate is abandoned when the tax base decreases, and
millage neutral then becomes the tax policy because the rolled back rate increases as the tax
base declines. Rolled back rate does not provide the marginal revenue increase needed to
support maintaining the County’s significant infrastructure investment, let alone capital facility
expansion and related services for an expanding population base in this community.
• Property taxes comprise 67% of total General Fund recurring revenue.
• If the Board had voted to levy the rolled back rate in FY 2022 during the September public
budget hearings, $11.2 million in General Fund capital and or operating program cuts would
have been necessary. This level of budget adjustment would not be accomplished by reducing
reserves since reserves are an integral component of preserving General Fund cash at year end;
provide a signal of financial strength to the rating agencies; and serve as financial leverage for
unforeseen natural disasters and/or shifts in Board policy mid -year. Cuts would have likely
come from reduced capital transfers funding transportation system improvements, stormwater,
and parks; elimination of all expanded requests funded by the General Fund required to service
new facility improvements and current service County Manager Agency and or constitutional
officer operating reductions.
• Programmed within the General Fund for FY 2023 is $48 million supporting various general
governmental capital initiatives, not including debt payments or capital reserves, in the areas
of transportation, parks and recreation, stormwater, airports, museums, and of course
constitutional capital requests.
• Constitutional operating transfers out of the General Fund (including Board paid requirements)
constitute 48.4% of all FY 2022 General Fund appropriations. While the Board can control
these appropriations, based upon history it is not likely that cuts would be made to
constitutional officer operations, especially the Sheriff.
Of the $539.4 million-dollar FY 2022 General Fund Budget only about 25.5 percent or $137.9
million is considered somewhat discretionary. The remaining appropriations are classified as
Health, Safety and Welfare; Debt Service and or Mandates where there is very limited to no
discretion over appropriations.
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Property tax revenue comprises 80% of Unincorporated Area General Fund recurring operating
revenue sources and when including the Communication Services revenue sharing from the State
the revenue mix jumps to 85%. Continued reduction in state shared communication services tax
revenue or worse will significantly impact general governmental services appropriated in this fund.
Like the General Fund, flexibility exists within the Unincorporated Area General Fund if a
response to any state shared communication services tax reduction is required. A substantial
reduction in the state shared communication services tax would require cuts to general
governmental operating programs and/or capital transfers, absent a replacement revenue source
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like a franchise fee. Florida counties possess the right and power to enter into a franchise agreement
with utilities – typically electrical - which franchise establishes terms for use of rights of way and
the compensation to be received for allowing the use of rights of way. The compensation can be
up to 6% of the revenue received by a utility from customers located within the counties
unincorporated political boundary. Many Florida counties and incorporated municipalities have
entered into utility franchise agreements. Lee County reached terms of an electric franchise
agreement with FPL and LCEC. Lee County customers currently paying a 4.5% fee on their utility
bill which raises around $18 million annually.
FY 2023 General Governmental Initiatives:
New general governmental capital improvements/operating initiatives over the next few years
include:
• Continue planning for and developing the Golden Gate Golf Course.
• Preliminary land use planning on the Hussey property and Camp Keais property.
• Hardening County facilities in preparation for natural disasters and the related grant match.
• Upgrades to IT infrastructure including security measures and the County’s various
management, financial and accounting software like SAP.
• Constructing phases two and three of the Paradise Coast Sports Complex including related
operations.
• Big Corkscrew Regional Park phase two capital and operations.
• Park system infrastructure replacement.
• Sheriff’s capital projects like a new helicopter to be purchased with existing cash in FY
2022 and various maintenance and sub facility upgrades.
• Mile marker 63 fire and rescue subsidy to replace any state funding shortfall.
• Fire District annexation of the Ochopee Fire MSTU and necessary additional contract
incentives to achieve annexation.
• Operational and maintenance implications of constructing projects funded by the local
option infrastructure sales tax.
• Vanderbilt Beach Road extension.
• Enhancements in storm-water maintenance service levels as well as continued capital
infrastructure upgrades.
• Strategic relocation of campus facilities and office operations, including constitutional
office operations and the Government Operations Business Park.
• Contributions to economic development initiatives like innovation zones.
• Board directed arts and culture funding.
• Pressure from unfunded state and federal mandates.
Whether paid by cash, financed, or funded through the Local Option Infrastructure Sales Tax,
operating, and maintaining this enhanced level of infrastructure improvement and service
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initiatives will require substantial investment of scarce and limited general governmental operating
revenue which is predominately property taxes.
Recognizing the County’s growing future general governmental asset maintenance responsibility,
an additional $15 million will be programmed for FY 2023 bringing the total to $32.5 million in
reserve dollars dedicated to maintaining the County’s future general governmental hard and soft
infrastructure investment. It is envisioned that the reserve amount will continue to grow in varying
amounts but no less than $5 million annually with the amount ultimately tied to the Board’s tax
rate policy. Regular annual deposits to this fund – like the County’s vehicle replacement funds-
emphasizes the need to isolate dollars for this future asset maintenance obligation knowing the
many competing programs, services and initiatives must receive dollars from a limited resource
pool. At the very least, cash on hand through this reserve pool will lessen the need for additional
government borrowing in the future.
Each year as new general governmental capital improvements are brought online pursuant to Board
policy, the level of operations required to support these facilities grows. Not lost are the regular
contributions to CRA’s and innovation zones which grow annually as the tax base increases,
assuming no change in tax rates, and these dollars while supporting development and incentives
in targeted areas represents reduced dollars to support general governmental services.
General Fund and Unincorporated Area General Fund contributions to CRA’s and innovation
zones for FY 2022 totaled $9.5 million (an increase of $870K over FY 2021) and $1.1 million (an
increase of $137K over FY 2021) respectively and these numbers will grow in FY 2023 with
projected tax base increases.
Other factors that will be significantly impacted by general governmental tax policy include.
1. Extent of capital and operational transfer dollars expended by the General Fund and
Unincorporated Area General Fund.
2. Level of service standards set by the Board for agencies and departments which are funded
within the General Fund and Unincorporated Area General Fund.
3. Proper level of resources to cover the organization’s current and future asset maintenance
responsibility. Competing priorities between operating and capital expenses within a
revenue structure heavily reliant upon property taxes.
4. General Fund and/or Unincorporated Area General Fund support for new or re-prioritized
operating and capital initiatives which were described above under FY 2023 general
governmental initiatives.
5. Impacts of potential unfunded mandates including continued state legislative attacks to
limit a counties home rule ability to raise property tax revenue and repeated attempts to
reduce existing shared revenue sources like the Communication Services Tax (CST);
school safety officer mandates without recurring state funding; further reductions in state
health care and social service funding; continued attempts to very restrictively define how
impact fee revenue can be used; as well as impacts from any reduction in federal payment
in lieu of taxes (PILT) funding.
6. Level of General Fund Ad Valorem operating support extended to constitutional officers
and specifically the Sheriff.
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What will not be impacted by the Board’s tax policy decisions are:
1. Maintaining strong beginning year General Fund and Unincorporated Area General
Fund cash balance in accordance with policy.
2. Policy driven growth in general governmental reserves.
3. Scheduled annual payment on the County’s debt service; and
4. Maintaining the County’s excellent market credit rating.
Discussion of Taxable Values, Millage Targets for the General Fund (County-Wide) and
Unincorporated Area General Fund and Related FY 2023 Budget and Financial Strategies
While the county-wide tax base has increased for ten (10) consecutive years (trending to eleven
for FY 2023), maintaining a millage neutral General Fund policy position remains the
recommended management objective. When setting millage rate policy, elected leaders need to be
mindful of the following points.
• A consistent millage neutral tax rate captures marginal increases in property tax
revenue when taxable values increase and provides a level of tax relief when taxable
values decline usually when the economy is softening.
• Relying on a rolled back rate policy while intended to raise the same property tax
revenue as the immediate prior tax year does not provide the consistent marginal
revenue increase needed to support capital facility expansion and related services for
an expanding population base in this community; nor does the rolled back rate provide
relief during periods of economic decline because the rolled back rate will increase
when taxable values drop.
The following table provides a history of Countywide and Unincorporated Area taxable values
over the past fifteen (15) years (tax year 2007-2021) as well as the budget planning projection for
tax year 2022 (FY 2023).
Tax Year
County Wide
Taxable Value
County Wide %
inc. (dec)
Unincorporated
Area Taxable Value
Unincorporated
Area % inc. (dec.)
2007 (FY 2008) $82,542,090,227 -------------- $53,397,231,747 -------------
2008 (FY 2009) $78,662,966,910 (4.7%) $50,860,023,424 (4.8%)
2009 (FY 2010) $69,976,749,096 (11.0%) $44,314,951,279 (12.8%)
2010 (FY 2011) $61,436,197,437 (12.2%) $38,146,886,403 (13.9%)
2011 (FY 2012) $58,202,570,727 (5.2%) $36,013,774,963 (5.6%)
2012 (FY 2013) $58,492,762,303 .50% $36,026,786,779 .04%
2013(FY 2014) $60,637,773,315 3.7% $37,207,018,234 3.3%
2014 (FY 2015) $64,595,296,747 6.5% $39,634,174,211 6.5%
2015 (FY 2016) $70,086,389,131 8.5% $43,075,586,559 8.7%
2016 (FY 2017) $77,115,163,725 10.0% $47,455,161,371 10.2%
2017 (FY 2018) $83,597,615,791 8.4% $51,754,136,138 9.1%
2018 (FY 2019) $88,286,266,672 5.6% $54,781,508,980 5.8%
2019 (FY 2020) $93,175,403,621 5.5% $58,037,803,377 5.9%
2020 (FY2021) $99,159,595,002 6.4% $62,320,804,025 7.4%
2021 (FY2022) $104,679,006,577 5.6% $65,864,893,076 5.7%
2022 (FY2023)
Planning $108,342,771,807 3.5% $68,170,164,334 3.5%
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The January 2022 State Ad Valorem Estimating Conference Report for the 2022 tax year (FY
2023) projects that Collier County certified taxable values (county-wide) on July 1, 2022 will
increase 10%. This number appears to be very aggressive and is likely based upon housing values
during calendar year 2021. Staff have been adept over the years at sizing the planning budget
around a conservative yet functional taxable value planning number providing for maximum
budget flexibility considering that most budget planning is over before the certified taxable value
number is received from the Property Appraiser at the end of June.
The taxable value estimate must allow for operational and capital programming needs as well as
reserve growth. Budget planning around a conservative 3.5% taxable value increase is realistic and
accomplishes the objective of budget planning flexibility. Any positive difference in taxable value
above the planning ceiling assuming a resulting increase in ad valorem revenue at millage neutral
can be used to strengthen the Board’s General Fund and Unincorporated Area General Fund
reserves and/or be applied to recurring and new programs, services and initiatives as directed by
the Board.
Property tax revenue comprises 67% of the General Fund (001) and 42% of the total net county
recurring revenue budget, including fund balances. According to Urban Institute local government
general property tax collections as a percentage of all general governmental collections for
counties total 28% on average.
The General Fund and Unincorporated Area General Fund tax or “millage” rate has varied over
the years and has been influenced by the taxable value environment and State legislation.
Tax or “millage” rates for the past sixteen (16) years are shown in table form below.
Millage Area FY 06 FY 07 FY 08 FY 09 FY10-FY16 FY17-FY22 FY 23
Planning
General Fund $3.8772 $3.5790 $3.1469 $3.1469 $3.5645 $3.5645 $3.5645
Unincorporated
Area General Fund
$.8069 $.8069 $.6912 $.6912 $.7161 $.8069 $.8069
The following table depicts taxable values and levies at various tax base increase scenarios under
a millage neutral rate. The County Manager is proposing to maintain the General Fund tax rate at
millage neutral or $3.5645 per $1,000 of taxable value. The Unincorporated Area General Fund
tax rate is also recommended to remain at millage neutral or $.8069 per $1,000 of taxable value.
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The respective General Fund and Unincorporated Area GF dollar values at the various scenarios
are shown below.
Current
Taxable Value
Pre VAB
FY 2023 @ 3.5%
(applying projected
Roll Back Rate)
FY 2023 @ 2% FY 2023 @ 3.5%
Policy Planning
Numbers
FY 2023 @ 4% FY 2023 @ 5%
General Fund /
County Wide 104,679,006,577 108,342,771,807 106,772,586,709 108,342,771,807 108,866,166,840 109,912,956,906
Unincorporated Area
General Fund 65,864,893,076 68,170,164,334 67,182,190,938 68,170,164,334 68,499,488,799 69,158,137,730
Current Levy
General Fund at
3.5645 373,128,319 360,532,242 380,590,885 386,187,810 388,053,452 391,784,735
Conservation Collier
at 0.2500 26,169,752 27,085,693 26,693,147 27,085,693 27,216,542 27,478,239
County Wide Total 399,298,071 387,617,935 407,284,032 413,273,503 415,269,994 419,262,974
Unincorporated Area
GF (Operating) 47,165,850 45,346,793 48,109,167 48,816,655 49,052,484 49,524,142
Unincorporated Area
GF (Landscape Cap) 5,980,532 6,189,851 6,100,143 6,189,851 6,219,754 6,279,559
Unincorporated Area
GF at $.8069 53,146,382 51,536,644 54,209,310 55,006,506 55,272,238 55,803,701
3.5% - Variance –
applying RB rate
from Current Levy
2% - Variance
from Current Levy
3.5% - Variance
from Current
Levy
4% - Variance
from Current
Levy
5% - Variance
from Current
Levy
General Fund
(millage neutral)
(12,596,077) 7,462,566 13,059,491 14,925,133 18,656,416
Conservation Collier
at 0.2500
915,941 523,395 915,941 1,046,790 1,308,488
County Wide Total (11,680,136) 7,985,961 13,975,432 15,971,923 19,964,904
Unincorporated Area
GF (Operating)
(1,819,057) 943,317 1,650,805 1,886,634 2,358,292
Unincorporated Area
Landscape Median
Program at $.0908
millage neutral
209,319 119,611 209,319 239,221 299,027
Total Unincorporated
Area General Fund
(1,609,738) 1,062,928 1,860,124 2,125,855 2,657,319
If taxable values fall below the three and one half (3.5%) percent planning scenario, budget
planning will be reduced accordingly. Conversely if taxable values exceed the planning
benchmark, additional ad valorem dollars can be used to increase reserves and/or applied to
programs and services as directed by the Board. It is likely that budgeted ad valorem revenue will
be millage rate driven rather than a strategy of setting the millage rate based upon a targeted ad
valorem revenue number.
Conservation Collier - On November 3, 2020, the Collier County electors approved the
Conservation Collier Re-establishment referendum with a 76.5% majority. This voter approval set
a county-wide millage rate not to exceed $.2500 mills for ten (10) years and does not include the
issuance of debt to acquire environmentally sensitive land.
Accordingly, the FY 2023 budget is proposed to be developed to include a Conservation Collier
Program tax levy of .25 mil that will generate up to $27,085,700. The FY 2022 budget appropriates
Conservation Collier tax proceeds (tax levy deposited in fund 172) to repay approximately
$3,700,000 to the Conservation Collier Management Trust Fund (fund 174) for monies advanced
to acquire strategic properties prior to the referendum. Further, consistent with Ordinance 2002-
63 as amended, twenty-five percent (25%) of annual gross tax receipts is deposited into the
Conservation Collier Management Trust Fund to provide for long term management of lands
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acquired through or managed by the Conservation Collier Program. For FY 2022, this transfer
totals $6,028,900. Remaining tax collections will remain in the Conservation Collier Acquisition
Trust Fund (fund 172) for use in acquiring environmentally sensitive lands.
Summary of Significant FY 2023 Adopted Budget Strategies to Achieve a Structurally
Balanced Budget
The following table highlights certain FY 2023 budget strategies which will be detailed within this
document and which the Board will consider as part of Adopted Budget Policies.
1 The County Manager is proposing to submit one FY 2023 millage neutral General
Fund (001) operating budget along with service level and related budgetary and
millage implications. Designate approximately seventy-two (72) percent of the
planned property tax revenue increase after constitutional transfers and satisfying
reserve requirements to capital initiatives with the remaining twenty-eight (28) percent
after constitutional transfers and satisfying reserve requirements to cover non
personnel recurring operating costs. Planning for recurring operating cost increases of
1.0% is below the identified CPI increase of 7.1% (see discussion below) and will
result in department reductions within strategic identified areas to meet this budget
guidance. The FY 2022 General Fund Adopted Budget appropriates dollars to fund all
constitutional agency operations which is roughly 48% of all General Fund
appropriations; County Manager agency operations; substantial capital transfers not
including capital reserves and debt service totaling $47 million to general
governmental facilities and constitutional capital needs, the regional park system, the
transportation network, stormwater maintenance, museums, and the Paradise Coast
Sports Complex. General Fund reserves for FY 2022 are within policy parameters and
currently total $64.9 million.
2 Proposed FY 2023 guidance for the Unincorporated Area General Fund (111) includes
maintaining the millage rate at $.8069. The Unincorporated Area General Fund
appropriates dollars for operating services like community parks, road maintenance,
stormwater, landscape operations and maintenance, comprehensive planning, zoning
and land use, code enforcement and coastal zone operations. Substantial capital
transfers to parks, the transportation network and stormwater maintenance continue
and for FY 2022 those capital transfer dollars totaled $9.6 million. Landscape
maintenance for FY 2023 is programmed at $10.6 million. Reserves continue to be
funded at policy levels which is a minimum of 2.5% of operating expenses.
3 County Manager agency expanded services will be limited to staffing new Board
approved capital facilities or Board directed level of service adjustments. County
Manager Agency total personal services costs for FY 2022 increased by $8.1 million to
$195.1 million or 48.3% of all County personnel costs. Constitutional budgeted personal
services for FY 2022 grew by 9.7 million to $209.1 million.
4 Pursue a strategy in FY 2023 which continues to place a premium on current
infrastructure replacement/maintenance on a pay as you go basis and integrate capital
financing where prudent and economically appropriate pursuant to the Debt
Management Policy. No debt will be programmed as part of the adopted budget.
Instead, any financing will be part of the amended budget based upon policy
directives.
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5 Recognizing the County’s mounting future general governmental asset maintenance
responsibility, the restricted future capital reserve created in FY 2020 will grow from
$17.5 million to $32.5 million for FY 2023. These reserve dollars are dedicated to
protecting the County’s future general governmental hard and soft infrastructure
investment. Regular annual deposits to this fund emphasizes the need to isolate dollars
for this future asset maintenance obligation knowing the many competing programs,
services and initiatives must receive dollars from a limited resource pool.
6 Establish budget parameters for enterprise operations which are tied to working capital
guidelines established by GFOA; capital obligations from the capital improvement
element (CIE); any rate or fee studies stipulations; priority agency wide expansion
initiatives; and statutory or ordinance spending limitations. A critical review of
operating and capital reserve levels versus operating and capital appropriations will be
discussed during County Manager budget deliberations with an expectation that enough
recurring resources are devoted to maintaining the utility asset at a high standard while
resources are set aside to protect cash and fulfill our fiduciary responsibility to public
protection in the event of a natural disaster.
7 Continue General Fund (001) county-wide debt and capital transfers to cover regular
special obligation revenue bond debt service; provide any necessary loans to the
impact fee trust funds to cover the debt service gap due to insufficient impact fee
collections; fund park’s capital; support future airport capital grant matches; fund
constitutional officer capital needs; and to help pay for needed general governmental
facility repairs.
8 The FY 2023 budget planning model under a millage neutral tax rate for FY 2023
allocates $15.8 million dollars from the General Fund and Unincorporated Area
General Fund toward existing storm-water infrastructure maintenance; pay as you go
capital; operations; and debt repayment. Debt service on the recent 2020A Special
Obligation Revenue Bond – $60 million stormwater component – totals $2.2 million
for FY 2023 thus the net amount for stormwater capital, system maintenance and
operating components totals $13.6 million.
9 The FY 2023 planning model at millage neutral increases the park capital and
infrastructure maintenance general governmental transfer marginally to $6.6 million
and the net amount after covering FY 2023 debt service of approximately $700K on
the $20 million 2020A Special Obligation Revenue Bond component totals $5.9
million.
10 The FY 2023 budget will be planned for maximum flexibility which will allow for
quick adjustments resulting from a softening economy; natural disasters; Board policy
initiatives; issuance of debt; changing expense timing; and unforeseen unfunded
mandates.
11 Establish General Fund contingency reserve at 2.5% of total budgeted appropriation
(less capital/debt transfers) and maintain the General Fund cash balance reserve at
$55.1 million bringing total General Fund reserves to $66.3 million, an increase of
$1.4 million over FY 2022. This modest growth in the General Fund reserves is
extremely important to protect the funds beginning FY cash position, present a
position of financial strength to the rating agencies, avoid more aggressive expenditur e
controls as budget margins tighten; position the County to become more self-reliant
knowing that federal and state funding as well as funding guidelines will continue to
tighten and become more onerous; and if necessary tap reserves to cover any
emergency disaster expenses and/or strategic Board policy initiatives.
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12 Use gas tax revenue to support road capital, maintenance, and debt (with an emphasis
on debt) consistent with budget planning and statutory requirements; and pursue
extending local option gas taxes during FY 2022/ FY 2023 well before expiration at
calendar year ending 2025.
13 Continue dialog where appropriate on future new universal and sustaining revenue
sources, like a franchise fee applicable to unincorporated area electric utility
customers, to diversify the composition of the County’s recurring general
governmental revenue mix.
Component increases of 1.0% devoted to operations, exclusive of salaries, at the department level
is planned. This means that department operations for FY 2023, which rely on the General Fund
and Unincorporated Area General Fund for dollars, will be restricted to a one percent (1.0%)
increase for current programs and services as well as any expanded services. This includes
operating transfers. For FY 2023, the percentage operating adjustment will be translated into a
dollar value for each department head to consider as priorities dictate.
Limited general governmental operational expense increases are expected and will be appropriated
to account for new programs and services instituted during FY 2022, inflationary adjusted fixed
costs and maintaining a competitive compensation package. The December 2020 over December
2021 CPI for the Miami Fort Lauderdale SMSA is 7.1 percent. This CPI number is artificially
inflated considering COVID related supply chain impacts which are impacting consumer prices.
It is expected that the inflation rate will subside over the coming months.
A significant portion of remaining budget planning dollars will be applied to Agency wide capital
equipment, asset replacement and new capital projects not covered by the local option
infrastructure sales tax or impact fees. This will manifest itself primarily through General Fund
and Unincorporated Area General Fund capital transfers for general governmental and
constitutional facilities, the transportation network, parks, stormwater, and heavy equipment.
For FY 2023 planning purposes and discussion in this policy document, the total General Fund
Budget is programmed to increase by $34,930,700. The following table depicts by category the
revenue and expense positive or negative changes connected with the FY 2023 General Fund
Planning Budget and the variances from FY 2022. Also shown for comparison are the budget
variances by category between FY 2021 and 2022.
Major Revenue Variances: Variance between
Budget FY 2022 and
Planning FY 2023
Variance between
Budget FY 2021 and
Planning FY 2022
Ad Valorem Taxes $ 12,787,800 $8,231,400
Sales Tax & Revenue Sharing 8,000,000 4,500,000
Department Revenues (645,800) (1,917,500)
Enterprise and Federal PILT and Cost Allocation 462,600 849,300
Transfer Revenue (2,231,200) (165,000)
Constitutional Officer’s Turnback/Excess Fees (100,000) 4,000,000
Interest 0 (300,000)
Carryforward 17,659,400 9,203,700
Less 5% Required Revenue Reserve (1,002,100) (725,600)
Total Revenue Increases $34,930,700 $23,676,300
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Major Expenditure Variances
County Manager, Court’s and Other General
Operations $ 5,471,700 $ 427,600
Operating Transfer’s 4,652,000 2,899,700
Capital & Debt Transfer’s 14,355,500 5,871,600
Sheriff Transfer 7,583,800 6,218,400
Other Constitutional Transfer’s 1,433,300 1,281,500
Reserves 1,434,400 6,977,500
Total Expenditure Increases $34,930,700 $23,676,300
Several observations can be made from this table. As discussed throughout this document, property
tax revenue dominates general governmental funding. Of significance also is the importance of a
healthy carry-forward (fund balance) at year end which influences expenditure planning and the
respective capital and operating allocations. Maintaining a healthy fund balance requires priority
funding of reserves as indicated in the analysis above.
The increase in General Fund budgeted carryforward planned at year ending 9/30/22 is directly
related to proactive budget planning and management knowing that the actual cash and cash
equivalents target at year ending 9/30/22 is between $120 million and $130 million. The plethora
of new general governmental initiatives over the past three years; cash flow requirements
connected with grants; constitutional officer statutorily required cash flow; steadily increasing
asset replacement and maintenance recurring requirements; reserving dollars for future asset
replacement and maintenance; positioning the budget to issue debt if necessary, during the budget
cycle; and insuring budget flexibility demands that adequate cash be on hand at year end.
The positive budgeted carryforward variance of $17.6 million from FY 2022 to FY 2023 is the
result of forecast operating revenue above budget and expense side management. This position
allows for flexible operating, capital transfer and reserve appropriation planning leading into FY
2023.
The planned increase in all General Fund budgeted reserves represents a regular managed increase
of $1.4 million over FY 2022 consistent with policy planning standards. Impact Fee collections
remain stable and for FY 2023 only $1.9 million is required from the General Fund to subsidize
growth related debt. While not a trend due to the volatility of impact fee collections, increased
collections over budget is a contributing factor allowing for a greater level of General Fund capital
transfers planned in FY 2023.
Each new program, service, initiative, or capital facility has recurring funding obligations, and the
layering effect becomes magnified each fiscal year. Whether staffing and operating the Paradise
Coast Sport’s Complex and Big Corkscrew Regional Park, contributing to economic development
incentive zones, satisfying approved economic development agreements, storm-water
programming, senior facility initiatives, buying land, fostering workforce housing, supporting
social services, investing in our public safety facilities, school safety officer funding or the myriad
of other current or future funding requirements; the County’s annual public safety investment and
servicing a demanding and growing citizenry requires stable resources and currently that stable
resource is primarily property taxes.
As a balancing measure, budget management is always ongoing and close expenditure controls are
always in place and monitored continually. Likewise, execution patterns are scrutinized along with
transfer dollars to make sure that appropriations are properly executed and spent for the intended
purpose.
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While it is important to always recognize our ongoing program, service and capital commitments
which have made Collier County a World Class location to “Live, Work and Play”, the level of
dollars devoted to this laudable goal must be measured against the continued need to maintain
prudent reserve levels; protect against any revenue shortfalls; guard against any assault by the state
legislature on the ad valorem and general county tax/revenue structure; and fulfill public
expectation to maintain/enhance service levels. Maintaining appropriate General Fund cash is
always a major focus and by policy the cash position is set at a minimum of 15% of actual
expenditures. Given our current General Fund reserve levels and cash flow requirements, it has
been prudent and OMB staff strives to maintain a cash position in this fund of between 20% and
30% of actual expenses. The actual General Fund cash and cash equivalents position at year ending
9/30/21 totaled $128,936,000 or 27.6% of actual expenses for FY 2021.
Each fiscal year the cash requirements due from the General Fund during the first quarter of the
fiscal year grows and is necessary to satisfy mandated cash flow transfers to the Constitutional
Officers, meet general operating requirements, debt service, required CRA and Innovation Zone
transfers and generally sustain operations in advance of property tax receipts received in
December.
County Grant Funding:
County participation in the State and Federal grant process remains aggressive but while the
common thinking is that grants are free money, the administrative burden surrounding application;
on site post award administration; and single audit compliance notwithstanding the local match
requirements and cash flow realities must not be overlooked. Program areas where grants are
prevalent include the Metropolitan Planning Organization (MPO), Transit, Housing,
Transportation, Stormwater, Airport, COVID 19 (Pandemic), Parks, Disaster Recovery, and other
areas. As of February 2022, the County had $418.9 million in active grants plus another $31.2
million scheduled to become active. Of the total $450.1 million active or soon to be active grants,
the local match requirement totals $59.7 million which must be found through the budget
amendment process by the respective Department’s from existing appropriations as part of the
grant award process.
All Cares Act, American Rescue Plan Act and other Pandemic dollars allocated to Collier
County now totals $189 million of which $84.1 million has been spent for individual assistance,
business assistance, transit services, aging services, and public safety. Spend down of the
remaining balance as directed by the Board will occur over the next few fiscal years in accordance
with federal requirements. The Board had previously approved internal transfer dollar re-
programming using Cares Act dollars to fund eligible EMS and Sheriff operations thus meeting
revised Federal and State Cares Act distribution guidelines. It is expected that this type of
budgetary action allowing maximum flexibility in how the funds are used will be recommended
in the future. Board action has also allowed for the redirection of general governmental and
CARES dollars totaling $44 million to first address needed community support initiatives like
individual, business and nonprofit assistance and second reimburse when appropriate based upon
Board direction, local government expenses.
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Local Option Infrastructure Sales Tax:
Local Option Infrastructure Sales Tax Capital Fund (318) provides the accounting structure for
managing all projects approved by the Board consistent with Ordinance 2018-21. Currently there
are thirty-six (36) approved projects budgeted within funded programs including Big Corkscrew
Regional Park Phase 1; EMS stations, Mental Health Facility, Sidewalks, various hurricane
resiliency initiatives; HVAC, roofing, and facility upgrades; DAS shelter and the Sheriff’s
Forensic and Evidence Building. Once a project is approved by the Board, the project accounting
structure is set up and budget is moved from reserves to a project budget. To date, a total of $250.1
million in infrastructure sales tax dollars has been received. Under the same statutory spend down
rules, interest income on the proceeds received to date total an additional $2.1 million. It is
expected that adequate cash flow will be available and therefore bridge financing will not be likely.
The key project which will reduce cash is Vanderbilt Beach Road and due to this projects timing
- while cash will be drawn down - bridge financing will likely not be necessary.
Future General Governmental Capital Improvements
Long Term Capital Reserve
Recognizing the County’s mounting future general governmental asset maintenance responsibility,
a Reserve Fund was created for FY 2020 fencing off dollars in incremental amounts annually
dedicated to protecting the County’s future hard and soft general governmental infrastructure
investment. Regular annual deposits to this fund emphasizes the need to isolate dollars for future
asset maintenance obligation knowing the many competing programs, services and initiatives must
receive dollars from a limited resource pool. For FY 2023, $15 million is budgeted bringing the
total reserve amount to $32.5 million. Drawing on this reserve will of course require Board action
under guidelines developed by OMB and the County Manager.
Capital Asset Management
Each year a significant portion of available annual resources are devoted to the maintenance and
management of the County’s general governmental infrastructure base. This strategy will continue
knowing that nonrecurring proceeds from the Local Option Infrastructure Sales Tax can only be
used for capital construction not maintenance and that the proceeds will be applied to specifically
identified and strategic capital projects. The current pay as you go strategy recognizes that
satisfying all new planned and programmed capital requirements over the next five (5) years
contained within the Capital Improvement Element (CIE) will require some financing component
despite the local option infrastructure sales tax.
The County issued competitive bond financing in November 2020 to maintain, replace existing
and construct new storm-water infrastructure; replace park aquatic systems and related recreation
improvements; payoff variable rate commercial paper used to purchase the Amateur Sports
complex property and purchase strategic eastern lands property. Augmenting the annual cash and
carry component of infrastructure maintenance are dollars set aside in a separate reserve fund for
future infrastructure replacement and maintenance. Despite the challenge, available resources will
continue to be allocated in the most prudent and economical manner to fund operations at required
service levels and construct and maintain strategic capital improvements.
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The following table provides a description of historical budget allocations and what is currently
planned in FY 2023 from the General Fund budget to support ongoing asset maintenance, strategic
new capital requirements and fund growth and non-growth debt obligations.
Category
General Fund
Non-Growth
Debt
Loans to
Impact Fee
Funds -
Debt
Loans to
Impact Fee
Funds –
Projects*
County
Wide
Capital
Transfer for
Other
Capital
Transfer to
Parks
Transfer to
Road
Network
Transfer to
Storm-Water
Capital
Long Term
Replacement
Capital
Reserve
Total
FY 2014 $3,657,700 $4,342,300 $0 $6,841,400 $3,800,000 $0 $8,768,800 $4,730,100 $0 $32,140,300
FY 2015 $3,079,600 $3,307,100 $7,813,200 $7,788,600 $3,441,200 $500,000 $9,499,900 $4,627,600 $0 $40,057,200
FY 2016 $3,077,500 $5,376,500 $900,000 $10,677,500 $4,333,100 $750,000 $14,559,800 $1,549,600 $0 $41,224,000
FY 2017 $3,073,000 $2,476,900 $0 $10,697,500 $4,000,000 $2,495,700 $8,460,000 $2,525,000 $0 $33,728,100
FY 2018 $2,855,200 $3,306,800 $2,000,000 $12,006,000 $4,313,500 $1,100,000 $11,650,400 $1,627,000 $0 $38,858,900
FY 2019 $3,479,400 $3,958,700 $216,200 $11,160,800 $645,000 $1,100,000 $8,555,800 $2,500,000 $0 $31,615,900
FY 2020 $3,694,200 $1,040,200 $0 $10,591,500 $1,625,600 $3,200,000 $9,388,900 $4,694,400 $5,000,000 $39,234,800
FY 2021 $3,650,400 $2,192,100 $0 $12,265,900 $4,753,000 $3,350,000 $8,817,300 $4,868,800 $5,000,000 $44,897,500
FY 2022 $8,908,000 $1,832,000 $0 $20,743,600 $4,435,000 $3,070,000 $8,817,300 $2,677,800 $7,500,000 $57,983,700
FY 2023 $7,349,300 $1,987,300 $0 $30,720,700 $2,207,000 $3,177,500 $9,125,900 $2,771,500 $15,000,000 $72,339,200
*FY 2015: EMS Station, SOE Complex, & Sheriff Substation. FY 2016: Additional funding for Sheriff Substation. FY18: EMS Station .
FY 19 EMS Station.
For FY 2023, funding as planned above will of course be subject to Board guidance on millage
rates and taxable property values received in July 2022. For perspective, countywide capital and
debt service expenses contained within the planning model and shown above amounts to 12.6%
of all General Fund planned appropriations for FY 2023. When you include Constitutional Officer
transfers at 47.0% of planned FY 2023 General Fund expenses and reserves which are 11.6% of
total General Fund expenses, these three components account for 71.2% of all General Fund
expenses in the planning model.
The General Fund regularly appropriates substantial dollars to new general go vernmental capital
and asset replacement projects benefitting countywide residents. This level of capital planning
which generally translates into approved budget appropriations provides part of the highly
desirable budget flexibility which is essential to sound fiscal management. Preserving General
Fund cash, maintaining adequate reserves, protecting the County’s superior investment quality
credit rating, and paying debt service will always take priority as expenditure planning evolves.
Generally, these priorities are strategically managed, and allocations are made in harmony with
other capital and operating spending appropriations.
Robust capital contributions are also appropriated within the Unincorporated Area General Fund
to augment the County’s commitment to capital programming. The following table depicts these
planned capital contributions.
Unincorporated Area
General Fund
Transfer
to Parks
Transfer to
Roads
Transfer to
Storm-Water
Capital
Total
FY 2014 $0 $0 $1,300,000 $1,300,000
FY 2015 $500,000 $3,860,000 $1,050,000 $5,410,000
FY 2016 $500,000 $2,427,300 $4,011,800 $6,939,100
FY 2017 $750,000 $3,300,000 $4,172,000 $8,222,000
FY 2018 $1,250,000 $4,000,000 $4,267,900 $9,517,900
FY 2019 $2,750,000 $4,250,000 $3,000,000 $10,000,000
FY 2020 $2,500,000 $4,000,000 $1,300,000 $7,800,000
FY 2021 $2,950,000 $3,000,000 $3,125,200 $9,075,200
FY 2022 $3,450,000 $3,000,000 $3,125,200 $9,575,200
FY 2023 $3,450,000 $3,000,000 $3,125,200 $9,575,200
Issuing strategic variable rate short term and/or fixed rate long-term debt is an important part of
the County’s capital improvement program under the basic premise that future residents should
pay for improvements that they will enjoy and not just current residents. Further, the historically
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low cost of capital environment which has and currently exists provides a unique opportunity to
lock in very low interest rates and capitalize on the County’s exemplary credit rating.
As such the County has issued since April 2018, $294.1 million in general governmental and
enterprise debt to fund several strategic initiatives including.
• April 2018 commercial paper draw of $12 million to purchase 60 acres for construction
of an amateur sports complex.
• Series 2018 Tourist Development Tax bonds totaling $62.9 million dated October 2018
to finance construction of the Paradise Sports Complex.
• Collier County Water/Sewer District revenue bonds dated April 2019 in the amount of
$76.2 million to finance the acquisition, construction and equipping of various utility
capital improvements servicing the northeast area of Collier County.
• Strategic purchase in July 2019 of the Golden Gate Golf Course for $28 million
through a taxable competitive bank loan.
• Series 2020 A&B tax exempt and taxable debt in the amount of $115 million dated
October 2020 for strategic eastern lands property acquisition, construction of
stormwater facilities and improvements to various park and recreation aquatic
facilities.
The County is always positioned to add new strategic debt to the portfolio after embarking upon
an aggressive debt restructuring program in the summer of 2010 and to date over $422 million in
general governmental debt has been refinanced. As a result, the cost of borrowing has been
reduced by $1,896,000 annually with this recurring savings applied toward high priority “pay as
you go” operating and capital programs. Annual principal and interest payments servicing
outstanding general governmental and enterprise debt totals $63.5 million and represent 4.1% of
the County’s net adopted FY 2021 budget.
Restructuring the debt portfolio is evaluated regularly and in fact, the Board will be asked
to approve in March 2022 restructuring certain maturities of the 2011 and 2013 Special
Obligation Revenue Bonds for present value interest savings of approximately $1.0 million
annually.
Countywide capital allocations have traditionally included new money components for general
governmental capital projects as well as maintaining and replacing existing general governmental
infrastructure.
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The following chart provides a summary description of General Fund transfer dollars programmed
for FY 2018, FY 2019, FY 2020, FY 2021, FY 2022, and that planned for FY 2023 for various
strategic general governmental capital initiatives. This table does not include debt service transfers
or the annual long term capital reserve transfer. No projects within the table below are slated
for funding from the Local Option Infrastructure Sales Tax.
General Fund Supported Capital
Category
FY 19 Budget FY 20 Budget FY 21 Budget FY 22 Budget FY 23 Budget
Medical Examiner’s Bldg. Expansion &
Repairs $0 $0 $2,500,000 $0 $500,000
EMS Station and Ambulance $2,100,000 $0 $0 $0 $0
Jail & other Sheriff Facility Repairs $1,000,000 $1,000,000 $0 $1,000,000 $1,000,000
Sheriff Helicopter Replacement $0 $0 $2,000,000 $5,000,000 $0
Sheriff Forensic & Evidence Bldg. $0 $0 $0 $0 $5,000,000
Sheriff’s Identification System Replacement $0 $0 $0 $0 1,000,000
Voting Machines $350,000 $400,000 $475,000 $0 $0
Clerk’s Annex Reorganization and Finance
Dept Relocation $0 $0 $1,800,000 $735,000 $0
Financial Accounting System (SAP)
Upgrade/Replacement $0 $2,750,000 $0 $2,000,000 $2,000,000
Great Wolf $0 $0 $0 $0 $2,000,000
Senior Center Renovations $0 $0 $500,000 $0 $0
Golden Gate Golf Course $0 $500,000 $1,000,000 $0 $0
Relocation of Campus Facilities and Office
Operations $0 $0 $540,700 $400,000 $0
Library Capital/Books $850,000 $950,000 $600,000 $500,000 $900,000
General Building Maintenance and A/C
Repairs not Sales Tax Funded $6,000,000 $5,000,000 $5,000,000 $5,000,000 $6,000,000
Major Projects & Roof Replacements $0 $0 $0 $5,000,000 $7,000,000
Video Monitoring System replacement $0 $0 $0 $2,188,400 $2,118,400
General Ops Business Park (GOBP) $0 $0 $0 $0 $2,000,000
Paradise Coast Sports Complex $0 $0 $0 $4,235,000 $2,000,000
Other General Governmental $1,077,000 ($8,500) (2,149,400)* ($1,079,800*) $1,202,300
Cashflow Irma for consultants’ invoices –
waiting for FEMA $3,326,500 $0 $0
Museum Capital $200,000 $200,000 $0 $200,000 $207,000
Airport Capital (Grant Match) $445,000 $1,425,600 $1,426,500 $0 $0
Park Capital $1,100,000 $3,200,000 $3,350,000 $3,070,000 $3,177,500
Transportation Capital $8,555,800 $9,388,900 $8,817,300 $8,817,300 $9,125,900
Storm-water Capital $2,500,000 $4,694,400 $4,868,400 $2,677,800 $2,771,500
Total $24,177,800 $29,500,400 $34,055,000 39,743,700 $48,002,600
*($2,149,400) = $50k for minor maintenance for software costs and $40k Coastal Zone Water Quality. Also, in FY20, completed projects with
residual funding were moved to Reserves to help fund FY21 projects reducing the need for additional General Fund support.
*$(1,079,800) = $340k for minor maintenance for software costs, $50k Coastal Zone Water Quality. Also, in FY21, completed projects with residual
funding were moved to Reserves to help fund FY22 projects reducing the need for additional General Fund support
Direct general governmental capital maintenance funding for parks and stormwater related system
improvements and operations from the General Fund and Unincorporated Area General Fund for
FY 2023 under the current planning scenario totaling $23.1 million is flat from that budgeted in
FY 2022 and part of this allocation or $2.9 million will be applied to payment of debt service on
the 2020A tax exempt Special Obligation Revenue Bond issued to finance stormwater and parks
improvements. This allocation includes operations maintenance in storm-water Fund (103). Of
course, the allocation may change as the FY 2023 budget evolves leading into the June workshop,
once taxable values are known, and budget requests are vetted.
The planned allocation shown in the table above includes transfer dollars to maintain the
transportation network, dollars for road resurfacing, intersection improvements, sheriff capital,
administrative accounting system and IT capital support, and an array of other capital support.
Management has the flexibility to allocate these General Fund and Unincorporated Area General
Fund transfer dollars to mission critical projects or initiatives at the expense of those efforts not
viewed as a high priority. This has and will continue to be the management strategy given the
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competition for general government resources, uncertainty with the communication services tax,
heavy reliance upon property taxes and the natural hazards which can impact coastal communities.
Recommended Budget Policy: Develop a General Fund (001) operating budget at the millage
neutral rate of $3.5645 and provide the Board with a summary divisional description of what
millage neutral purchases in terms of services and the progress made in devoting dollars to asset
maintenance and strategic capital initiatives.
Approve guidance for the Unincorporated Area General Fund (111) which includes maintaining
the millage rate at $.8069.
Use of Gas Taxes and Future Gas Tax Pledged Debt:
Restructuring of the gas tax debt in FY 2012 and FY 2014 at substantially lower interest costs,
reduced debt service by $1.0 million annually and this additional money has been applied to system
maintenance and improvements.
Gas tax dollars which align with the current gas tax ordinances not devoted to paying debt service
will be available annually until the debt expires in 2023 and 2025 unless additional wrapped debt
after satisfying the adds bond test is issued for identified transportation/road related improvements.
Remember that $26 million of the $60 million set aside as part of the local option infrastructure
sales tax initially for construction of new bridges were redirected to fund replacement of existing
bridges due to project timing.
One potential strategy for the Board to consider is using the annual available constitutional gas
tax bond coverage above the add bonds test of 1.35x and apply this marginal additional coverage
to issuing wrapped debt in an amount up to $25 million funding necessary and planned
transportation system and road improvements. Paralleling this approach is Board consideration to
extending each local option gas tax ordinance in the full 12 cent amount which can be
accomplished by local authority. The first 11 cents (commonly referred to as the 1 cent to 5 cents
and 1 cent to 6 cents series) can be extended by a simple majority vote of the Board while the 9th
cent requires a super majority vote. The County approved three separate ordinances levying the
maximum local option gas taxes of 12 cents for purposes of paying debt service and maintaining
the roadway system. All three ordinances which extend for twenty (20) years are set to expire on
or about December 31, 2025. Gas taxes are the pledged source of repayment on the current Series
2012 and Series 2014 Gas Tax Refunding Bonds.
The strategy behind an early extension before December of 2025 involves capitalizing on low
interest rates; greater coverage ratios; and an extended repayment horizon which increases funding
capacity. Proceeds would fund identified Transportation system assets deemed “poor” in the
inventory; capacity improvements not funded by the Local Option Infrastructure Sales Tax; and
expansion of the eastern Collier County transportation grid. Large scale projects identified in
the five (5) year CIE which could be financed include Collier Boulevard (Green Boulevard to Main
Golden Gate Canal), Vanderbilt Beach Road (16th Street NE to Everglades Boulevard), Goodlette
Road (Vanderbilt Beach Road to Immokalee Road) and Wilson Boulevard (Golden Gate
Boulevard to Immokalee Road). Interest rates on superior investment quality bonds - like Collier
County credit - remain low. These large-scale projects and others identified for completion in the
five-year CIE between FY 23 and FY 26 have a projected shortfall in recurring funding
approaching $88,000,000. Specific project engineering schedules will be reviewed during the
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succeeding 12-month period and the Finance Committee will continue to refine the concept and
strategy and further information will be forthcoming.
Previously, the Board directed through policy that all available uncommitted gas taxes will be used
to support maintenance of the transportation network and related capital initiatives. Beginning in
FY 2019, no general governmental dollars were transferred to the Gas Tax Fund (313). Instead,
general governmental dollars will be transferred to Capital Fund (310) supporting the maintenance
and improvement of the transportation network. This change was made to specifically track use of
gas tax proceeds in accordance with state statutes without any comingling of general governmental
money.
Gas taxes collected in FY 2021 from all sources in totaled $22.9 million. When you consider the
payment of annual debt service ($13.2M), the remaining $9.7 million is programmed for
construction and maintenance of the transportation network consistent with strict statutory
guidelines.
Augmenting transportation network improvements budgeted in Gas Tax Fund (313) are regular
general governmental transfers to Transportation Capital Fund (310). The General Fund capital
transfer planned for FY 2023 to Fund (310) is $9,125,900 which represents an increase of $308,600
over FY 2022. The Unincorporated Area General Fund transfer planned to Fund (310) for FY 2023
is $3,000,000 representing no change from FY 2022. These dollars support maintenance on the
roadway network including intersection improvements, resurfacing, sidewalks, pathways, asset
management and traffic control software, and other critical maintenance needs which are not
eligible for gas tax funding by statute.
Recommended Budget Policy: Continue the Board’s policy applying gas tax revenue to pay for
debt service on the Gas Tax Revenue Bonds, and that the remaining gas tax revenue and transfer
dollars from the General Fund and Unincorporated Area General Fund continue to
support/supplement maintenance on the roadway network.
Youth Relations Officer’s and School Guardians:
The program of placing a school safety officer in Collier County Schools has been in place for
decades and this program has been elevated to greater public attention since the Parkland shooting
and State passage of SB 7026 which requires the placement of safe school officers or public
guardians at each school facility within the District, including charter schools. It is important to
note that legal responsibility to comply with the requirements of SB 7026, including funding rests
with the Collier County School District. Collier County is compliant with the state law and the
priority is always continued compliance through enhanced protocols, strategies, and
personnel.
Current Sheriff’s Youth Relations Bureau funding is consistent with budget needs expressed by
the Sheriff’s office and includes a sworn deputy in each school district and charter school building.
This is the preferred public safety approach to compliance with state statute as agreed upon
between school district leadership and the Sheriff.
The County receives from the School District pass through dollars remitted by the state and this
amount totaled $1.6 million in FY 2019 and $1.8 million in FY 2020 and in FY 2021. Annual
pass-through dollars are dependent upon state appropriation each year.
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General State Legislative and Budget Update
The Governor’s proposed FY 2022-23 “Freedom First Budget” totals $99.7 billion with total
reserves exceeding $15 billion. Despite dire projections two years ago, the Florida economy has
rebounded with State revenues exceeding pre-pandemic estimates by more than $3 billion over
FY 20-21 and 21-22. The State’s AAA Stable Bond rating has been maintained.
Below are some highlights of the Executive’s proposal currently being considered by the
Legislature:
• $9.27 billion for the State Transportation Work Program
• $980 million to restore the Everglades and protect water resources, including $660
million for Everglades restoration, $195 million for targeted water quality improvements,
$35 million to improve water quality and combat harmful algal blooms
• $550 million to increase the resiliency of coastal and inland communities
• $600 million for teacher pay (to reach a minimum teacher salary of $47,500)
• $421 million for school safety and mental health initiatives
• $453 million in pay increases for state sworn law enforcement officers, correctional
officers, state firefighters, and state employees.
• $95 million for the State Apartment Incentive Loan (SAIL) Program
• $220.5 million for the State Housing Initiatives Partnership Program (SHIP)
• $188.6 million in funding for community based behavioral health services
• $50 million in recurring funding for VISIT FLORIDA marketing
The County’s lobbying team continues to monitor and address any legislation containing
unfunded mandates, preemption of local regulation to the State, government accountability and
transparency, and any initiative that may impact local tax collections.
General Fund Budget Allocations by Agency and Component
The purpose of this allocation is to identify those agency appropriation components within the
General Fund. All agencies work diligently with the County Manager in support of budget policies
adopted by the Board. Equally important is the premise that all agencies would share in any budget
reductions necessitated by taxable values below the planning threshold, reductions in property tax
revenues, new state tax reform initiatives, reductions in state shared revenue and unfunded
mandates
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Considering that planned transfers to the Constitutional Agencies in FY 2023 account for 47% of
total General Fund budgeted expenses and 70% of the General Fund ad valorem budgeted revenue,
their participation in any necessary reductions due in part to unexpected ad valorem revenue
shortfalls, tax rate reductions or unforeseen unfunded mandates is essential.
It should be noted that these expense percentages are gross figures and do not account for
statutorily required year ending constitutional officer turn back. This turn back revenue is budgeted
and forecast conservatively each year. Constitutional turn back revenue totaled $10,721,900 and
$38,788,100 respectively across all funds for years ending FY 2020 and FY 2021 respectively.
The FY 2021 figure is inflated due to the CARES sub-recipient agreement with the Sheriff which
allowed for $31,000,000 in CARES funds to be earmarked for CCSO salaries freeing up a like
amount in turnback funds for flexible general governmental use. For year ending 2021, actual
collections exceeded forecast in the General Fund by $4.7 million to $38,285,100. The General
Fund receives on average 91% to 96% of all turn back revenue.
Recommended Budget Policy: Continue this policy.
Millage Targets for Collier County MSTU’s, MSTD’s
A Municipal Service Taxing Unit (MSTU) is a mechanism by which a county can fund a service
from a levy of ad valorem taxes, not countywide, but within all or a portion of the county. In the
County budget, an MSTU is used to segregate the ad valorem taxes levied within the taxing unit
to ensure that funds derived from such levy are used to provide the contemplated services within
the boundaries of the taxing unit as required.
MSTU’s are created by ordinance and generally there are provisions governing the maximum
millage rate that can be levied. Local ordinance is the control, even if the rolled back rate exceeds
the ordained millage cap.
BCC / Co
Attorney 3%
County
Managers
Agency 25%
Road Program
Subsidy 2%
Debt / Capital
Subsidy 11%
Reserves 11%
Courts 1%
Clerk of Courts
2%
Property
Appraiser 1%
Sheriff 40%
Supervisor of
Elections 1%
Tax Collector 3%
FY 2023 General Fund Planning Budget
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There are twenty-one (21) MSTU’s and dependent districts active under Collier County’s taxing
umbrella. Of these, twelve (12) have advisory boards which provide recommendations to the Board
of County Commissioners.
Recommended Budget Policy: For FY 2023, it is suggested that those existing MSTU’s without
advisory board oversight be limited to a rolled back millage rate position unless staff presents a
compelling reason for additional funds during budget presentations or rolled back rate is higher
than millage neutral. Additionally, it is suggested that existing MSTU’s with advisory board
oversight be allowed to consider tax rate options ranging from tax neutral (rolled back rate) to
millage neutral depending upon program requirements and taxable values with specific advisory
board recommendations offered during the budget review cycle.
Revenue Centric Budgets
It is generally recognized that all budgets and expense disbursements regardless of fund or activity
are revenue and cash dependent. This concept establishes that enterprise funds, internal service
funds, certain special revenue funds and other operational funds which rely solely on fee for service
income with zero reliance upon ad valorem revenue should be allowed to establish budgets and
conduct operations within revenue centric guidelines dictated by cash on hand and anticipated
receipts.
For FY 2023, revenue centric budget parameters for enterprise operations will be tied to working
capital guidelines established by GFOA; capital obligations from the capital improvement element
(CIE); any rate or fee studies stipulations; priority agency wide expansion initiatives; and statutory
or ordinance spending limitations. A critical review of operating and capital reserve levels versus
operating and capital appropriations will be discussed during County Manager budget
deliberations with an expectation that enough recurring resources are devoted to maintaining the
utility asset at a high standard while resources are set aside to protect cash and fulfill our fiduciary
responsibility to public protection in the event of a natural disaster.
This concept also presumes continual monitoring of cash and receipts and, if necessary, subsequent
operational adjustments dictated by cash flow. Therefore, general governmental departmental
spending guidance will not apply.
Certain cost centers or functions have a net cost to the General Fund (001) or Unincorporated Area
General Fund (111). In these instances where fee for services offset the ad valorem impact, then
the budget reduction guidance should account for this positive impact upon the net cost to the
General Fund (001) or to the Unincorporated Area General Fund (111). Under this revenue centric
approach, Departments will be held to their fee for service projections and any negative fee
variances will be addressed through expenditure cuts and not subsidized by Ad Valorem taxes.
Department Head discretion upon guidance by the County Manager should be afforded in these
scenarios.
Recommended Budget Policy: Adopt this Enterprise Fund and General Governmental revenue
centric budget policy.
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Expanded Positions
For FY 2023, Departments will carefully consider expanded positions since proposed operating
expenditure guidance will likely require a significant re-prioritization of current FY 2022 budget.
Any expanded requests will be limited to new capital facility openings and/or Board directed
service level adjustments. All budget to budget expanded positions and programs will be reviewed
by the County Manager and his recommendations will be presented as part of FY 2023 budget
workshop discussions in June.
Recommended Budget Policy: Expanded position requests will be limited to Board approved
capital facility openings and/or Board approved service level adjustments with final County
Manager recommendations presented at the June budget workshop.
Compensation Administration
The philosophy of Collier County Government is to provide a market-based compensation
program that meets the following goals:
1. Facilitates the hiring and retention of the most knowledgeable, skilled, and experienced
employees available.
2. Supports continuous training, professional development, and enhanced career mobility.
3. Establish equitability in position pay ranges and to rates paid incumbents in those positions
4. Recognizes and rewards individual and team achievements.
The Board on January 25, 2022 approved a recommendation to initiate phase one of a
comprehensive overhaul of the County’s classification and compensation plan from Evergreen
Solutions intended to advance the above stated goals through rewarding existing employees with
an average 8.5% salary increase and further fixing the internal pay plan structure allowing the
County Manager’s Agency to become much more competitive in the attraction and retention of
skilled talent. The almost $7.2 million phase one investment in our dedicated and loyal County
Manager Agency workforce is considered long overdue and represents a planned initiative to
earmark resources keeping Collier County competitive in today’s ever changing employment
market.
The Consumer Price Index 12-month percent change from December 2020 to December 2021 is
7.1% for the Miami-Fort Lauderdale area. It is generally believed that this number is artificially
high due to supply chain issues, and it is expected that the inflation index will stabilize and shrink
by year end. This is one of the indices that Collier County traditionally uses when considering a
general wage adjustment. The annual Florida Relative Price Index, an index comparing the relative
cost of living among the State’s 67 counties, is also used as a basis for compensation plan
recommendations. The most recently published Florida Relative Price Index lists Collier County
as having the second highest relative cost of living among the 67 counties in the State.
The Evergreen Classification and Compensation Study is expected to conclude by the end of
FY2022, with the intent to implement further recommended changes at the beginning of
FY2023. The focus for the remaining phases of the study is to revise the pay structure, create
new or revise existing job classifications, establish sound pay practices and provide a solid
foundation to re-initiate merit pay. These steps are intended to provide the organization with
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more flexibility in pay practices and allow the County to maintain a successful, market-based
compensation structure for future years.
The County Manager proposes to appropriate an additional $10 million toward phase two
implementation in FY 2023 with the specific parameters to be submitted for Board consideration
at the June Workshop meeting.
Recommended Budget Policy: Appropriate an additional $10 million in FY 2023 toward phase
two implementation of the Evergreen Classification and Compensation Study with the specific
parameters to be submitted for Board consideration at the June Workshop meeting. In previous
years, the Board of County Commissioners has authorized adjustments to the compensation plan
as shown within the following table.
Program
Component
FY 10 –
FY 12
FY 13 FY 14 FY 15 FY 16 FY 17 FY 18
FY 19 FY 20 FY 21 FY 22 FY 23
General Wage
Adjustment
0.00% 2.00% $1,000 2.00% /
$1,000
1.50% /
$1,000
3.00% 2.90% 2.00% $1,200
represents
average of
2.2%
Greater of
$1,200 or
2.00%
$1,000 @
10/1/21;
Avg. 8.5%
increase
@1/1/22
To be
Determined
Awards
Program
0.00% 0.00% 0.00% 0.00% 0.00% 0.00% 0.00% 0.00% 0.00% 0.00% 0.00% 0.00%
Pay Plan
Maintenance
0.00% 0.00% 0.00% 0.00% 1.50% 0.00% 0.60% 0.00% 0.50% 0.80% 0.00% 0.00%
Total 0.00% 2.00% $1,000 2.00% 3.00% 3.00% 3.50% 2.00% Average of
2.7%
Average of
2.8%
Average of
8.5%
Average
TBD
Health Care Program and Cost Sharing
The County is self-funded and seeks to operate the health plan with the same diligence as a small
insurance company. Like an insurance company, the County faces a significant budget risk within
the health plan due to the potential for a statistical claim cost variance of 10% around the expected
mean claims cost. Such variance is normal statistically and has its roots in the fact that total
medical costs are extremely sensitive to the number of claimants who experience catastrophic
losses. The expected number and size of large claimants is by nature extremely random and
volatile. To manage and prevent this variability, the County reinsures catastrophic losses and
maintains a prudent reserve to comply with Florida Department of Insurance requirements as well
as to protect the General Fund from this volatility.
There are several goals that guide how the County operates the plan within the small insurance
company context. These are:
1. Comply with all legal and regulatory requirements for plan operation
2. Manage plan cost trends to be 30% or more below published trends
3. Maintain overall controllable expenses, reinsurance costs, network fee arrangements and
reserves at prudent levels
4. Protect our employees from the economic impacts of illness or injury
5. Prevent illness when possible by helping our employees and their spouses become aware
of their health, and act on that knowledge
Coverage under the Plan extends to all eligible County employees, except for the Sheriff’s Office,
which operates its own self-funded plan. Nationally, as well as here in Florida, medical plan costs,
and the premium dollars required to fund them, continue to increase annually. The County’s
medical plan has the potential to be similarly impacted by these rising costs.
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Historically, overall operational costs through administration and reinsurance have been between
2.9% and 5.9% of total costs. For FY 2021, expenses to operate the plan were 2.4%, meaning that
over $0.97 on every dollar contributed by Collier County Government and employees goes toward
paying medical expenses. The operation of Collier County’s health plan far exceeds the expense
ratio requirements of the Affordable Care Act.
Due to exceptional plan performance over the past 11 years, plan reserves significantly exceed
statutory minimums. Therefore, it is recommended that there be no (0%) rate increase for
FY 2023. It should be noted that employer health insurance contribution increases are absorbed
within operating appropriations.
Since 2009, Collier County Government has invested in processes to heighten employees and
spouse’s awareness of their health and make available resources to assist covered employees and
spouses in improving and maintaining their health. These programs have achieved meaningful
reductions in risk and improvements in outcomes for the covered participants. Employees and
spouses have embraced the County’s preventive educational and qualifier processes which have
contributed greatly toward the financial strength of the health program. Over the last 11 years,
participation has been consistently more than 90% for those meeting the necessary qualifiers. This
rate far exceeds those of large employers nationwide.
With the objective of mitigating increases to the plan, the County will continue to emphasize
participation in existing wellness program, proper structuring of reinsurance to manage adverse
plan impacts and prudent plan management.
Historically, Board budget guidance has suggested that all agencies uniformly share health
insurance contributions between employers and employees.
Recommended Budget Policy: In FY 2023, no rate increase is recommended, and staff will
endeavor to keep the average cost distribution of health insurance premiums between the Board
of County Commissioners and employees at 80% (employer) and 20% (employee). It is still
suggested that the 80% employer share and 20% employee share be uniform across all
agencies, including the Constitutional Officers. This policy treats all county employees equally
in terms of cost sharing for health insurance premiums.
Retirement Rates
All agencies including Constitutional Officers must use the retirement rates published within the
OMB budget instructions. OMB is monitoring all proposed bills. The legislature usually
establishes the new retirement rates in the beginning of May with the Governor signi ng the bill
into law at the end of May. The preliminary retirement rates that will be published in the
instructions are based on proposed House and/or Senate Bills (Florida Statute Chapter 121).
Recommended Budget Policy: Adherence to the OMB rates published within the OMB budget
instructions.
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Accrued Salary Savings
When employees leave, they are generally replaced, and the process of replacement takes varying
lengths of time depending on the position being recruited. This fact coupled with the full budgeted
amounts for health insurance and worker’s compensation being transferred to the self-insurance
funds, impacts the amount of accrued salary savings due to position vacancies. For FY 2016, this
rate was established at 2%. For FY 2023, it is suggested that the attrition rate remain at 2%.
Recommended Budget Policy: Continue the accrued salary savings policy at a 2% rate.
Financing New and Replacement Capital Infrastructure
The issuance of debt for capital improvements is generally considered as a good alternative to pay
as you go under the philosophy that future taxpayers who will also enjoy the capital improvements
should participate in funding capital improvements rather than that burden falling solely to existing
taxpayers. Further, the low interest rate environment, the County’s superior investment quality
credit rating, a revenue to debt service ratio well below the self-imposed cap of 13%, and not
raising the millage rate to pay debt service for world class capital amenities provide further
rationale for issuing strategic debt. Total unaudited general governmental and enterprise principal
debt outstanding at 9/30/21 was $730.4 million and includes recent new debt issues of FY 2018,
FY 2019, and FY 2020. Debt outstanding reached a high of $788 million in FY 2008.
Pursuant to the Collier County Debt Management Policy, several guiding principles have been
identified that provide the framework within which the issuance, management, continuing
evaluation of and reporting on all debt obligations issued by the County takes place.
Asset Life: The County will consider long-term financing for the acquisition, maintenance,
replacement, or expansion of physical assets (including land) only if they have a useful life of at
least five (5) years. Debt will be used only to finance capital projects and equipment, except in
case of emergency. County debt will generally not be issued for periods exceeding the useful life
or average useful lives of the project or projects financed.
Capital Financing: Debt of longer amortization periods will be issued for capital projects when it
is an appropriate means to achieve a fair allocation of costs between current and future
beneficiaries. Debt shall not, in general, be used for projects solely because insufficient funds are
budgeted at the time of acquisition or construction.
To the degree possible, the County will rely on specifically generated funds and or grants and
contributions from other governments to finance its capital needs on a pay as you go basis. To
achieve this, it may become necessary to secure short term (not exceeding 5 years amortization)
construction funding. Such financing is anticipated and allows maximum flexibility in CIP
implementation.
A decision to issue some component of short or long-term debt is based upon level of service
standards, the timing of any capital improvement, ability to execute, the credit market
environment, and cost of capital. The County had pursued a strategy in recent history (FY 2008
and prior years) by incurring short term commercial paper loans for capital projects and refinancing
that short-term debt with longer term bonds or other long-term credit instruments which match the
asset’s useful life. Short term commercial paper loans carry a low variable interest rate – with the
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January 2021 rate currently at 1.31% - and funds can be accessed within about 30-45 days of
approving the authorizing resolution.
The advantage of long term competitively issued bonded debt especially in a low interest rate
environment is that budget certainty for the cost of credit is achieved. Generally, a project should
be ready for construction and proceeds must reasonably be expected to be spent within a three-
year window from debt issuance or adverse tax consequences may occur. Long term bonded debt
or in the alternative competitively issue bank loans can be issued normally within a ninety (90)
day window. The County’s current general governmental long-term debt portfolio is comprised of
special obligation revenue bond debt under a covenant to budget and appropriate all legally
available non- ad valorem revenue. It is anticipated that this type of long- term debt will be used
under future new general governmental debt credit scenarios.
Immediate Term New Debt Strategy: Passage of the Local Option Infrastructure Sales Tax does
not eliminate the need to finance future infrastructure needs. New debt would be considered as
projects are engineered and progressing in the following circumstances.
• Financing in the estimated amount up to $100 million to construct phase 1 (4MGD) of the
Northeast Regional Water Reclamation Facility within the next 5 years. Further
financing for the construction of the first phase (5 MGD) of Northeast Regional Water
Treatment Plant is anticipated in the upcoming 10 planning cycle.
• Government Operations Business Park located on County property by the landfill with
phase one currently ongoing to prepare the land and underground in the approximate
amount up to $40 million in advance of locating/relocating transportation and stormwater
facilities, public utility facilities, pollution control facilities, and Sheriff’s evidence facility.
Current budget on hand is funding this initial land and underground prep work. The Sheriff
evidence facility in the amount of $33 million is partially funded from the local option
infrastructure sales tax. Constructing the facilities including the Sheriff’s evidence facility
is estimated to cost $131 million with the construction phase scheduled to begin in FY 2023.
Financing will be required.
• General Sheriff replacement capital improvements based upon a phased prioritized
schedule.
• Any gap financing to complete all phases of the Sports Complex and Events Center.
• Gas Tax transportation network improvements.
The following illustrates various long-term financing scenarios, the annual debt service, and the
respective interest rates.
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Recommended Budget Policy: It is not suggested that any financing strategy be built into the FY
2023 adopted budget. It is recommended that the Finance Committee continue to work with the
County’s various agency department stakeholders regarding project scope, timing, and execution
patterns and with our debt issuance team to develop a strategy and be ready to pursue a debt
issuance plan based upon Board direction.
Storm Water Management Funding
The budget planning model under a millage neutral tax rate for FY 2023 allocates $15.8 million
from the General Fund and Unincorporated Area General Fund toward cash and carry storm-water
infrastructure replacement ($5.9 million); industry standard maintenance and operations ($7.7
million); and annual debt service on the November 2020 Special Obligation Revenue Bond Series
A $60 million stormwater component ($2.2 million). Annual debt service will reduce the cash and
carry capital allocation and project engineering and capital implementation is ongoing to spend
down bond proceeds on strategic projects intended to update the County’s stormwater system.
Recommended Budget Policy: For FY 2023 continue general governmental funding for industry
standard storm-water maintenance and operations; cash and carry capital transfers and debt service
from the General Fund and Unincorporated Area General Fund with the component funding
identified above.
General Fund General Capital/ Debt Service Contribution
The following table identifies how General Governmental County Wide Capital contributions
appropriated within the General Fund were programmed in FY 2022 and planned in FY 2023.
General Fund transfers to Stormwater and Transportation System improvements are accounted for
separately and not included in this General Capital programming scenario.
0
5
10
15
20
$50 Million $75 Million $100 Million $150 Million
Annual Debt Service ($ Millions)Project Fund
New Financing Scenarios
10 Year (1.73%)15 Year (2.21%)20 Year (2.65%)25 Year (2.98%)
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General Appropriation FY 2020 FY 2021 FY 2022 FY 2023
Non-Growth Debt Service $ 3,694,200 $ 3,650,400 $ 8,908,000 $ 7,349,300
Impact Fee Trust Fund Loans 1,040,200 2,192,100 1,832,000 1,987,300
General Governmental Capital Projects 10,591,500 15,592,400 20,743,600 30,720,700
Park’s, Museums, and Airport Transfers 4,825,600 4,776,500 7,505,000 5,384,500
Future Capital Replacement Reserve 5,000,000 5,000,000 7,500,000 15,000,000
Total $25,151,500 $31,211,400 $46,488,600 $60,441,800
Planned contributions in FY 2023 represent a significant increase from FY 2022 and this allocation
may change depending upon Board adopted millage rate policy; changes in the tax base; Board
adopted operational service level changes; or other reprioritized initiatives.
Total loans outstanding to the impact fee trust funds (i.e., EMS, Libraries, Corrections, Law
Enforcement and General Government Facilities) from the General Fund since inception (FY
2005) through FY 2023 totals $104.9 million. Going forward, the level of General Fund loan
subsidy is heavily dependent upon the level of impact fee collections and any new eligible growth-
related general governmental capital projects planned in the areas identified above in this
paragraph which are not paid by the Local Option Infrastructure Sales Tax. Current general
governmental growth debt which is paid predominately from impact fees expires in FY 2036.
General Fund loans to the Airports began on or about FY 1995 and to date various operational and
capital subsidies total $29.6 million. Recent loans have not been necessary to subsidize operations
but to support capital grant matches.
Payment of debt is always a top priority. Under the FY 2023 budget planning scenario dollars
allocated will cover all revenue bond debt service.
The cumulative net interest rate of the County’s overall debt portfolio has been reduced from
approximately 5% to 2.83% and annual principal and interest payments servicing all outstanding
County debt (includes enterprise debt) totals $70.8 million and represents 4.0% of the County’s
net adopted FY 2022 budget. General governmental debt service represents 2.4% of the County’s
net adopted FY 2022 budget. The following charts depicts annual debt service payments servicing
all debt and annual debt service connected with our general governmental credit.
Collier County’s total un-audited principal debt outstanding at 9/30/21 totals $730.4 million of
which $356.7 million relates to infrastructure improvements driven by population growth and
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related service demands. The County’s principal debt is $57.8 million below the FY 2008 figure
of $788 million.
Recommended Budget Policy: Continue General Fund countywide capital contribution for
purposes of paying non-growth-related revenue bond debt; to provide impact fee fund loans to
cover growth related debt obligations; and to fund continuing general governmental priority capital
needs.
General Governmental, Enterprise Fund, and Other Fund Reserve Policies
General Fund: Reserve is a budget/policy term referring to resources set aside to provide a
financial barrier against risk. Likewise, reserves may also be referred to as a portion of fund
balance – only on the expense side of the equation. Reserves are the cornerstone of financial
flexibility and provide government with options for responding to unexpected issues and a buffer
against shocks and other forms of risk. One such un-planned risk may for example include the
potential for a grant award to be rescinded after work on the activity begins.
Grant revenues are appropriated at the time of award with the expectation of future cash inflows
from the grantor agency. Until reimbursements are received, the General Fund and General Fund
supported agencies provides the cashflow for most general governmental grant funded activities
and is responsible for financing grant related activities in full, should the County default on any
grant provisions or a grantor agency cancels, revokes, or de-obligates an award.
It is essential for governments to maintain adequate levels of fund balance to mitigate current and
future risks such as revenue shortfalls, natural disasters, and unanticipated expenditures. As such,
budgeted reserves serve to protect beginning cash position in a fund and are an essential component
of Collier County’s overall financial management strategy and a key factor in external agency
measurement of Collier County’s financial strength.
Various bond rating agencies recognize that the best reserve policies provide both specificity and
flexibility accomplishing one or more of at least the following three criteria:
• establishing a target level of reserves or a reserve floor
• specifying the appropriate circumstances for drawing down reserves
• directing the replenishment of reserves
In general, rating agencies view positively higher reserve levels, although local governments can
maintain high credit ratings with lower reserve levels if other indicators of financial flexibility
such as revenue raising ability, stable diverse revenue structure, expenditure flexibility and
conservative budgeting practices are strong.
A reserve for contingency is typically budgeted in all operating funds, except for the Constitutional
agency funds. Reserves for the Constitutional Agency funds shall be appropriated within the
County General Fund.
The following is a history of budgeted reserves within the General Fund and Unincorporated Area
General Fund since FY 2008 as well as the % of reserves against total operating expenses.
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Fiscal Year General Fund
Reserves
Unincorporated Area
General Fund Reserves
% of General
Fund Expenses
% of Unincorporated
GF Expenses
2023 $66,291,300 $3,188,500 13.1% 4.8%
2022 $64,856,900 $4,189,100 13.7% 6.7%
2021 $56,798,900 $2,695,500 12.8% 4.4%
2020 $51,532,900 $2,340,600 12.1% 3.9%
2019 $44,481,200 $2,982,300 11.4% 5.3%
2018 $40,450,300 $3,255,000 10.8% 5.5%
2017 $33,899,700 $2,432,900 9.6% 4.8%
2016 $27,890,800 $1,905,600 8.4% 4.4%
2015 $26,670,700 $2,220,100 8.5% 5.6%
2014 $26,217,400 $1,715,000 8.9% 4.5%
2013 $24,844,400 $1,596,200 8.7% 4.3%
2012 $18,180,900 $1,739,500 6.2% 4.5%
2011 $14,210,200 $2,925,100 4.7% 7.4%
2010 $15,569,100 $3,422,400 4.9% 7.2%
2009 $17,541,200 $2,853,500 5.0% 5.8%
2008 $20,506,000 $6,336,600 5.5% 12.9%
Optimally, and to achieve a regular and sustained General Fund beginning fiscal year cash position
of at least $120 to $130 million, budgeted reserves should be a minimum of $60 million.
Otherwise, expense side management of the budget in the form of capital transfer reductions and
or reductions in operating transfers may become necessary.
Budget management is always ongoing and more magnified at times when Hurricane events occur.
Expenditures and revenues are monitored continually, and any budget adjustments are made
accordingly. Likewise, execution patterns are scrutinized along with transfer dollars – specifically
out of the General Fund to make sure that appropriations are properly executed and spent for the
intended purpose.
Florida State Statutes: In all respects, budgeted reserves shall conform to requirements of Florida
State Statutes. The State establishes maximum limitations on certain reserves.
The maximum limitations for contingency reserves and for cash flow reserves are 10% and 20%
of a fund’s total budget respectively. There is no statutory limit on capital reserves.
Recommended Budgeted Policy Reserve Position for the General Fund: The Governmental
Finance Officers Association (GFOA) recommends as a baseline, or floor, that General Fund
reserves be set at 16% of regular operating revenues or 2 months of regular operating expenses.
This would put Collier County’s General Fund reserve floor (minimum) based upon FY 2022
budget numbers in the $71M-$79M range.
Collier County has never attained a General Fund budgeted reserve position higher than the FY
2023 proposed position of $66.3 million This reserve position includes a contingency reserve set
at the recurring policy level equivalent to 2.5% of operations. While Collier County is vulnerable
to extreme weather events given its coastal location, the County’s revenue sources are relatively
stable and expenditure patterns are not volatile. Further, the General Fund budget is flexible with
FY 2023 planned capital transfers out representing 12.6% of appropriations. In addition, the
County’s total all funds reserve position is stable and will be used in part to cash flow a significant
weather event or other natural disaster. These factors suggest a less aggressive reserve position
with a floor or minimum of 8% of operating revenues and a ceiling or maximum not to exceed
16% of operating revenues. Applying these percentages to our current FY 2023 proposed planning
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budget, the reserve floor and ceiling would total $36.8 million and $73.6 million respectively.
Planned reserves within the General Fund fall within this range.
Replenishment of reserves that drop below the targeted floor (minimum) would occur in
succeeding budget cycles in such amounts as deemed prudent under existing economic conditions
as approved by the Board. The goal will be to recover at least 25% of the reserve shortfall in year
one; 25% in year two; and the remaining shortfall in year three.
Recommended Budgeted Reserve Position for Other General Governmental Funds
including the Unincorporated Area General Fund: The Unincorporated Area General Fund is
primarily an operating fund. While capital transfers have increased over the past few years, the
Unincorporated Area General Fund and for that matter other general governmental funds do not
have nearly the cash flow requirements of the General Fund. Thus, the reserve requirements for
the Unincorporated Area General Fund should be set at a minimum of 2.5% of operating expenses
or $1.64 million with a ceiling or maximum of no more than one month’s expenses which for
planning FY 2023 is approximately $5.45 million. FY 2023 planning reserves are $3.19 million.
Reserve requirements for other General Governmental Funds including those that receive
significant transfer revenue from the General Fund will be sized to cover operations during the
first month or until the first General Fund transfer is scheduled pursuant to the OMB Transfer
Schedule.
Reserves Policy Position for the Motor Pool Replacement Family of Funds (409, 472, 491,
523)
The Motor Pool Replacement Funds were re-established in FY 2016. The annual funding of the
Reserve will be through an annual billing to the applicable user Divisions in an amount equal to
the future cost of the vehicle divided by the useful life of the vehicle.
In FY 2016, the Motor Pool Replacement Fund was established for the various General
Governmental Funds (523), Water/Sewer District (409), and Solid Waste (472).
In FY 2017, the balance of user Divisions were included in the appropriation plan, i.e.: EMS (491)
and Road and Bridge/Stormwater (Funds 101 and 103/523).
Reserves within the four Motor Pool Replacement Funds maintain a current replacement reserve
(reserve for future capital) equal to a minimum of two (2) year’s estimated replacement cost of
vehicles currently in service.
Reserve Policy Position for the Pelican Bay Services Division Family of Funds (109, 778, 320
and 322).
Operating Reserves Fund (109) – It is recommended that the funds reserve position be established
at between 15% and 30% of operating expense. This is particularly important given the districts
coastal nature, level of infrastructure investment, natural assets and commitment to maintenance
and resource protection.
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Street Lighting Fund (778) – The level of reserves in this fund will be established in such amounts
necessary to set aside funding to accomplish lighting projects consistent with the Pelican Bay
Community Improvement Plan.
Capital Project Funds (320 & 322) – Reserve levels are generally minimal with most budgeted
dollars appropriated within defined and active projects.
Reserve Policy Position for Enterprise Funds, including the Collier County Water-Sewer
District Fund (408, 412, 414) and the Solid and Hazardous Waste Management Funds (470,
471, 473, 474).
General: According to the GFOA, it is essential that a government maintain adequate levels of
Reserves in its enterprise funds to mitigate current and future risks like revenue shortfalls and
unanticipated expenses and to ensure stable services and fees.
Collier County Water-Sewer District (CCWSD) Funds 408, 412, and 414: Like a General Fund
reserve, a utility system reserve position may be measured as a percent of regular revenues or
regular expenditures, depending on the predictability or volatility of each.
The Collier County Water-Sewer District reserve policies should be based on sound fiscal
principles designed to enable the utility to maintain continuity of operations in adverse conditions
and avoid user rate shock (rate stabilization).
In addition, various bond rating agencies, particularly Fitch Ratings, recognizes that the best
reserve policies provide both specificity and flexibility, accomplishing one or more of at least three
main criteria:
• Establishing a target level of reserves,
• Specifying the appropriate circumstances for drawing down reserves, and
• Directing the replenishment of reserves
For enterprise funds, the GFOA recommends starting with an assumption of 90 days and adjusting
based on relevant risks with 45 days as a bare minimum and recognizes the difference between
enterprise funds that are supported from the general government and those that are not.
The utility system, with gross assets of approximately $1.5 billion, should maintain a reserve
position necessary to ensure the maintenance of life sustaining services to the public during non -
routine and unforeseen disaster situations such as hurricanes or other related weather events, other
environmental or natural disasters, or other events that cause disruptions in public services, such
as system failures and line breaks.
Collier County lies within a coastal zone highly susceptible to hurricane and storm damage to
water and sewer treatment facilities, transmission lines and distribution/collection mains. Many
of the buried water and wastewater lines sit in sandy soil that is prone to shifting during heavy rain
events. Uncertainty in economic markets with regards to cost of construction materials, interest
rates, personnel and health costs add to the risk factors facing the utility. In the CCWSD, user fee
revenue is used to support the operating budget as well as the capital repair and rehabilitation
program for the horizontal (in-ground) and vertical (above ground) assets.
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Reserves can be classified as either “restricted” or “unrestricted”:
• Restricted Reserves - are those established for specific purposes only, such as debt
reserves required by bond covenants, and/or reserves for growth in the impact fee
funds which can be utilized only for growth projects.
• Unrestricted Reserves – are available to ensure continuity of services as identified
above.
Unrestricted reserves in the CCWSD include general contingencies reserves (i.e., “rainy day”
significant unforeseen events), cash flow reserves in the event of revenue disruptions, or capital
reserves for necessary but unforeseen repair and rehabilitation projects.
Recommended Reserve Policy for the CCWSD: At a minimum, the unrestricted reserves should
be budgeted within a range of 5% to 15% of budgeted revenues (revenues are stable but may be
subject to temporary disruptions from hurricanes or natural disasters), or within a range of 45-90
days of budgeted operating expenses (operating expenses are more volatile given aging utility
infrastructure and unforeseen events). Forty-five (45) to ninety (90) days of reserves based on
Fund (408), (412), and (414) budgeted FY 2022 operating expenses would range from $22.5
million to $45 million. FY 2022 Working Capital resources total $29.0 million representing fifty-
eight (58) days of reserves.
Replenishment of unrestricted reserves that may drop below the targeted floor (45 days) or $22.5
million using FY 2022 numbers would occur in succeeding budget cycles in such amounts as
deemed prudent under existing economic conditions as approved by the Board.
Solid and Hazardous Waste Management Enterprise Funds 470, 471, 473, and 474: The Solid and
Hazardous Waste program in Collier County includes the operation of the solid and hazardous
waste disposal program, the recycling program, and the management of the mandatory residential
curbside collections program. These funds also include both restricted capital reserves (Fund 471
for landfill closure and disaster debris mission) and unrestricted operating and capital
reserves. The department is responsible for the right of way disaster debris removal on County
roads and monitoring project for Collier County in the event of a natural disaster, such as the
Hurricane Irma (Category 3, dry storm cash flow exposure up to $65 million) event in the 4th
quarter of 2017.
As such, the Solid Waste Division should maintain unrestricted reserves of 45 to 90 days of
operating expenditures to be used to ensure the maintenance of on-going health and safety services
to the public during non-routine and unforeseen disaster situations such as hurricanes and other
weather-related events, as well as other environmental or other natural disasters that cause
disruptions in public services.
Further, due to the magnitude of the impact that Collier County experienced in the Right of Way
debris mission following Hurricane Irma, a restricted cash flow reserve equivalent to ten percent
(10%) of solid waste revenues as a bare minimum is being funded to be used solely for upfront
cash needs that accrue with significant natural disasters. This amount should begin to approximate
reimbursements that would not be forthcoming from FEMA and the State of Florida (typically
twelve and one-half percent (12.5%) of the cost of the debris removal mission). Such a restricted
reserve balance mitigates the need to borrow from other Enterprise Funds and/or the General Fund
while awaiting reimbursements from FEMA and the State.
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Recommended Reserve Policy for the Solid and Hazardous Waste Enterprise Funds: Forty-
five (45) to ninety (90) days of unrestricted reserves based on Fund (470), (473), and (474)
budgeted FY 2022 operating expenses would range from $7.2 million to $14.4 million. FY 2022
unrestricted reserves for the Solid and Hazardous Waste Management Enterprise Funds total $11.2
million or seventy (70) days of reserves.
Replenishment of unrestricted reserves that drop below the targeted floor (45 days) or $7.2 million
would occur in succeeding budget cycles in such amounts as deemed prudent under existing
economic conditions as approved by the Board.
Contributing to a restricted reserve of ten (10%) percent of the FY 2022 budgeted charges for
services at a minimum would total approximately $5.7 million. FY 2022 restricted reserves for
disaster response total $8.8 million.
Growth Management Division (GMD) - Planning & Regulation Enterprise Fund 113 and
Development Services Enterprise Fund 131: Fund (113), referred to as the Building Department
Fund, collects revenues primarily related to building permit activities, including building permits,
structural, electrical, plumbing, and mechanical inspections, plans reviews, and the licensing and
oversight of building contractors.
GMD Building Permit Fund (113) Recommended Reserve: Targeted reserves for this fund shall
be 18 months of the total budgeted expenses of the current fiscal year.
The Growth Management Division/Planning & Regulation Fee Schedule, adopted by resolution of
the Board of County Commissioners, provides the guidelines to implement fee adjustments if total
reserves rise or fall below established thresholds.
Fund (131), referred to as the Land Development Services Fund, collects revenues primarily
related to land development permit activities, including planning and zoning, engineering, and
environmental and natural resources.
GMD Planning Fund (131) Recommended Reserve: Targeted reserves for this fund shall be 24
months of the total budgeted expenses of the current fiscal year. The extra 6 months of targeted
reserves required in comparison to Fund 113 reflects the unpredictable nature and length of
processing time for land development related activities.
Internal Service Fund Reserves
Reserves for Internal Service funds reflect amounts that are intended for and must be used to meet
a specific purpose.
The restriction can be set by legal agreement, statute, regulations, and/or mandatory reserves. For
purposes of this policy emphasis is placed on the risk management group of funds and information
technology.
Recommended Policy: To establish cash flow for the Internal Service Funds, using a benchmark
of 90 days of the prior year’s working capital.
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Contingency reserves represent amounts available for appropriation by the Board to meet any
lawful, unanticipated need of that fund. These reserve amounts are limited by Florida Statutes and
cannot exceed 10% of the total appropriations of the fund.
Collier County is self-insured and is subject to mandatory reserves for losses. Each year an
actuarial study is completed for each of the County’s self-insurance funds and the present value of
all outstanding losses is determined. This amount represents the first level of restricted reserves
for our Risk Management Funds. Within the Risk Management’s restricted reserve balance, the
Board has designated $5,000,000 for wind deductible maximum limits coverage for potential
catastrophic losses associated with named storm events.
A margin based upon a confidence interval is then added to this base amount to assure that the
estimate is adequate to meet future claim payments. The Board of County Commissioners has
traditionally adopted, as contained within budget policy, a 75% confidence interval.
The Group Life and Health Insurance Fund within Risk Management have additional statutory
reserve requirements that are calculated each year and added to the restricted reserve category.
The Information Technology Capital Fund’s restricted reserve amounts are determined by the total
of committed capital projects they have in progress at the end of the year. Once the projects are
completed, any remaining funds may be re-appropriated. Designated reserves are established to
provide funds for a specific purpose where the actual cost is unknown.
CPI Based Enterprise Fee Adjustments
On June 10, 2014, the Board during discussions on the water, wastewater, irrigation quality water
and bulk potable water rate study provided unanimous guidance to index all enterprise fees
annually equal to the year over year December adjustment in the Consumer Price Index (CPI) –
Miami, Fort Lauderdale SMSA. Rather than going through time consuming and potentially costly
rate studies, the Board suggested that the CPI adjustment be programmed and subsequently be
reviewed by the Board during the budget process. This allows the Board discretion in approving
the CPI adjustment and not simply passing the adjustment on automatically.
Recommended Budget Policy: Provide the Board with an annual report on potential enterprise
rate and fee adjustments in accordance with CPI changes as indicated above and that any rate or
fee adjustments be included within the proposed budget for Board consideration.
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Suggested Scheduling Timeline
Decisions Required Staff Adopted Date(s)
Establish Budget Submission Dates for
the Sheriff, the Supervisor of Elections,
and the Clerk of Courts.
May 1, 2022 by Resolution
FY 2023 June Budget Workshops (BCC Agency/Courts and Constitutional Officers Budget Workshops)
Thursday, June 16 and if necessary, Friday June 17, 2022
FAC Conference is June 28 – June 30, 2022 in Orlando/ Orange
County.
Adoption of Tentative Maximum FY
2023 Millage Rates
July 12, 2022 (Tuesday)
Submission of Tentative FY 2023
Budget to the Board
Friday July 15, 2022.
Establish Public Hearing Dates (see note) September 8, 2022 (Thursday at 5:05 pm)
September 22, 2022 (Thursday at 5:05 pm)
Note: The School Board has priority in establishing public hearing dates for budgets. The School
Board’s final budget hearing is tentatively scheduled for Monday September 12, 2022.
The Commission chambers are reserved for the tentative dates for Collier County Government
budget public hearings.
Recommended Budget Policy: Approve the dates identified above and attached resolution
establishing May 1, 2022 budget submittal dates for the Sheriff, the Supervisor of Elections, and
the Clerk.
Comparative Budget Data
Provide comparative budget data using FY 2022 adopted budget data (cost and employees per
capita based on unincorporated area population) by Agency with Budget Submittals for Similar
Sized Florida Counties.
Recommended Budget Policy: Counties for comparison purposes include:
• Sarasota County
• Lee County
• Charlotte County
• Manatee County
• Martin County
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Regular Routine Budget Policies for FY 2023
Grant Funded Positions: Any positions formerly funded with grant funds being recommended
for inclusion in a general (non-grant funded) operating budget shall be treated as expanded service
requests.
Self-Insurance: To conduct an actuarial study of the self-insured Workers’ Compensation,
Property and Casualty, and Group Health Insurance programs. Program funding to be based upon
an actuarial based confidence interval of 75%, except for group health to which a confidence
interval is not applicable.
Contract Agency Funding: The Board will not fund any non-mandated social service agencies.
Median Maintenance: Recognize the Unincorporated Area General Fund MSTD (111) as the
appropriate, dedicated funding source for median beautification maintenance costs.
Carry forward (Fund Balance): All funds that are unexpended and unencumbered at the end of
the fiscal year will be appropriated as carry forward revenue in the following year. Carry forward
revenue represents not only operating funds but also previously budgeted operating, debt service,
and capital reserves that are "carried forward" to fund these same reserves in the new year or to fund
capital projects in the current or future years. The largest sources of carry forward are the capital,
debt service, and enterprise funds. In both the General Fund and Unincorporated Area General Fund,
carry forward is maintained to provide cash flow for operations prior to the receipt of ad valorem
taxes and other general revenue sources.
Proper General Fund carryforward is necessary to meet significant constitutional transfer, public
safety and priority operating needs for October and November, prior to the receipt of any
significant ad valorem tax revenue (ad valorem taxes represent 67.0% of the total FY 2022 General
Fund adopted recurring operating revenues).
Carryforward balance is also an important measure used by bond rating agencies in determining
the County’s credit worthiness. Specific concerns for Florida communities are reliance on the
tourism industry and sales tax revenue, and the ongoing threat from hurricanes and wildfires. For
Florida coastal communities, a minimum cash balance of 15% of total General Fund expenditures
was recommended by the ratings agencies. Of course, this figure and recommendation was general
in nature and subject to each county’s individual cash flow needs. A higher percentage would be
considered positive – especially during any ratings surveillance.
The recommended level of year ending cash in the General Fund should be a minimum of 15%
of actual expenditures. At year ending September 30, 2021, actual General Fund cash and cash
equivalents balance totaled $128,936,000, an increase of $15,217,900 over year ending September
30, 2020. The FY 2021 year ending cash position represents approximately 27.6% of actual FY
2021 expenses.
Indirect Cost Allocation Plan: The policy of charging enterprise, special revenue, and grant
funds for support services provided by General Fund departments will be used again in FY 2022.
The basis of these charges is a detailed indirect cost allocation plan prepared, periodically, by a
consultant and adjusted by staff to reflect the organizational environment on a real-time basis.
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Impact Fees: Collier County will assess impact fees at such levels as allowed by law, established
by the Board of County Commissioners, and supported by impact fee studies.
Enterprise Fund Payment In lieu of Taxes: The Solid Waste Fund and the Collier County
Water-Sewer District will once again contribute a payment in lieu of taxes (PILT) to the General
Fund. For FY 2022, the payment in lieu of taxes calculation was based upon a “franchise fee
equivalent basis” commonly referred to as a percentage of gross receipts. Six percent (6.0%) of
gross receipts of the Water/Sewer District were applied in FY 2022. This method and percentage
will continue for FY 2023. One and three-quarter percent (1.75%) of Solid Waste tipping fees were
applied in FY 2022 and this method and percentage is planned in FY 2022. This method is a
common approach used by local governments and is generally consistent with fees paid by private
utilities operating in a local government jurisdiction.
Prior to FY 2013, PILT was based upon the prior year General Fund millage rate multiplied by the
prior year gross (non-depreciated) value of property, plant, and equipment.
Debt Service: Any capital projects financed by borrowing money shall limit the repayment period
to the useful life of the asset.
Interim Financing: Collier County may also borrow funds on an interim basis to fund capital
projects. In these cases, a repayment source shall be identified and the financing source that has
the lowest total cost shall be employed.
The Collier County Debt Management Policy provides that debt restructuring for economic
savings will be undertaken when a present value savings of at least five percent of the refunded
debt can be achieved. The policy also states that five percent savings is often considered a
benchmark and that any refunding that produces a smaller net present value savings may be
considered on a case-by-case basis. A smaller net present value savings may be prudent for
example when the intent is to eliminate old antiquated and limiting bond covenant language.
Ad Valorem Capital and Debt Funding: Continuation of a General Fund equivalent millage
dedicated to ongoing regular general governmental capital projects, debt service and impact fee
fund debt loans from the General Fund. The target rate is the equivalent of 0.3333 mills. (See
history below).
1.0000
0.6580
0.5474
0.5426
0.4148
0.3040
0.3713
0.2354
0.3333 0.3530
0.1931
0.3520
0.2495
0.2701
0.2329
0.4441
0.5579
0.0000
0.2000
0.4000
0.6000
0.8000
1.0000
1.2000
MillageGeneral Fund Capital Equivalent Millage History
(FY 1991 -FY 2023)
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The General Fund continues to loan money to impact fee funds to pay their annual debt service
payments. This of course is in addition to normal and customary debt service on non-growth
revenue bond debt. Loans from the General Fund to the impact fee trust funds began in FY 2006
and the value of all loans made now exceed $105 million.
Capital Improvement Program (CIP) Policies : On an annual basis, the County shall prepare
and adopt a five-year Capital Improvement Element (CIE) consistent with the requirements of the
Growth Management Plan.
• Capital projects attributable to growth will be funded, to the extent possible, by impact
fees.
• Capital projects identified in the five-year CIE will be given priority for funding. The five-
year plan for water and wastewater CIE projects will be based on projects included in the
adopted master plans.
Unlike operating budgets that are administered at the appropriation unit level, capital project
budgets will continue to be administered on a total project budget basis. The minimum threshold
for projects budgeted in capital funds is $25,000.
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Three-Year Budget Projections
Ad Valorem Tax Funds
(FY 2023 - FY 2025)
OMB staff prepares annually a three-year projection of General Fund and Unincorporated Area
General Fund revenues and expenditures to improve financial planning and to understand the long-
term impact of funding decisions. These projections are complimented by a trend analysis of
revenues and expenses which conclude the General Fund and Unincorporated Area General Fund
sections respectively.
The following 3-year budget projections are for the General Fund (001) and the MSTD General
Fund (111).
General Fund
General Fund (001) Millage History and Projected Millage Rates
As a point of reference, the following graph plots the historical General Fund millage rate, as well
as tax rates for FY 2023 through FY 2025. These rates do not include any marginal increase which
the Board may direct by policy for a specific program or initiative. Millage neutral rather than tax
neutral rates for general operations are used for planning purposes considering the belief that
taxable value will continue to increase modestly in the future.
While the County Manager will be recommending a General Fund millage neutral base operating
budget in FY 2023 and while this millage neutral budget will contain funding for priority public
safety and other significant asset maintenance/replacement initiatives, the Board should note the
magnitude of our current and future asset maintenance responsibility as well as significant new
initiatives and devote additional future dollars which may be generated from an increasing taxable
value base to fund these recurring initiatives.
3.8772 3.8772
3.5790
3.1469 3.1469
3.5645 3.5645 3.5645 3.5645
-
0.5000
1.0000
1.5000
2.0000
2.5000
3.0000
3.5000
4.0000
4.5000
General Fund Millage History and Recommended Millage Neutral Tax Rates
(FY 2005 to FY 2025)
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Diversifying the County’s tax base means in large part attempting to reduce risk. Risk of an
economic downturn which surely will stagnate resources and organizational risk where the risk of
stagnate resources exponentially impacts operations and capital resource allocation. Significant
future resources must be devoted to capital maintenance in numerous areas. We have addressed
our future heavy equipment, public safety ambulance and general vehicle replacement needs. But
there remains substantial asset maintenance and replacement needs, not the least of which is
general governmental building maintenance, park’s system infrastructure, constitutional officer
capital requirements and other general governmental capital functions like, information technology
upgrades, accounting system replacement, and other soft infrastructure needs. Then there is the
issue of maintaining existing storm-water infrastructure which for FY 23 will be funded on par
consistent with industry standards through general governmental appropriations.
The following tables depict the respective millage neutral tax rates for FY 2023, 2024 and 2025
as well as additional ad valorem dollars which could be raised under certain increasing tax base
assumptions.
General Fund
FY 23 Adopted and Recommended
Operating Millage Neutral Millage Rates
Additional Budgeted Ad Valorem
Revenue Projection Each Year
FY 22 3.5645
FY 23 3.5645 $12,787,800 @ 3.5% TV Increase
FY 24 3.5645 $7,723,800 @ 2.0% TV Increase
FY 25 3.5645 $7,878,200 @ 2.0% TV Increase
FY 26 3.5645
For Collier County to continue providing high quality best value services; continue to address
infrastructure maintenance and replacement; replace public safety and general governmental
equipment and vehicles and maintain its reserve and cash positions pursuant to policy and
representative of an investment quality credit rated organization, it is prudent to capture those
additional ad valorem dollars generated by an increasing taxable base. New governmental
initiatives which always seem to emerge each fiscal year also provide rationale to capture property
tax revenue from an increasing base year over year.
Failure to capture additional property tax dollars resulting from increasing taxable values will
jeopardize service levels and make it difficult to maintain the extraordinary world class
infrastructure investment which this community enjoys. As taxable values begin to slow and
investment in County innovation zones and the County and Naples CRA’s grows the margin
between rolled back rate and millage neutral will narrow. Thus, maintaining the long -standing
millage neutral philosophy must be continued knowing the level of investment required to simply
maintain our general governmental assets, and fund Sheriff operations let alone expand services
and facilities based upon AUIR requirements and servicing the needs of an expanding population.
The projected millage rates assume that the tax base will increase 3.5% in FY 2023 (the 2022 tax
year). Taxable value in FY 2024 is projected to also increase 2%. The Property Appraiser will
provide preliminary taxable value estimates for FY 2023 on June 1, 2022. Actual and assumed
changes in County taxable values are as follows:
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Notes to Graph - FY 2007: The General Fund (001) millage rate adopted in FY 2007 was based upon a 16% increase in taxable value pursuant
to BCC direction. FY 2008: As part of the Florida Legislative Property Tax Reform package implemented in FY 2008, Collier
County adopted its final millage rate at 91% of the rolled back rate.
FY 2023 Significant Expense Assumptions
A millage neutral operating budget, again assuming no marginal adjustment for special policy
initiatives of the BCC, assuming an increasing taxable value base provides the County with
those important additional ad valorem dollars necessary to maintain our assets, invest in our
personnel, and service those who live and visit Collier County. Significant expense
assumptions include.
• Allocation for compensation administration – apply phase two Evergreen Solutions
recommendations with an approximate allocation across the County Manager Agency
totaling $10,000,000.
• 2% attrition rate on regular salaries assumed in the County Manager’s Agency.
• Motor pool replacement dollars for routine ambulance replacement on schedule.
• $6,000,000 for general County Manager Agency building maintenance plus an
additional $7,000,000 for roof replacements and major projects and $2,000,000 for site
development for the General Governmental Business Park (GOBP).
• $15,000,000 allocation toward long-term general governmental asset maintenance
reserve
• Continued Social Service and Mental Health Funding.
• General Fund loans to the impact fee trust funds planned at $1,987,300 which while
low compared to previous years should not be viewed as a trend due to the volatility of
impact fees.
• Stormwater maintenance, operations, and transfers for capital and debt service
payments planned at $7.7 million.
• General Fund transfer dollars supporting road construction and maintenance funded at
$9.1 million.
11.9%
19.9%
25.4%
7.2%
-4.7%
-11.0%-12.2%
-5.2%
0.5%
3.7%
6.5%
8.5%10.0%
8.4%
5.6%5.5%6.4%5.6%
3.5%2.0%2.0%
-15.0%
-10.0%
-5.0%
0.0%
5.0%
10.0%
15.0%
20.0%
25.0%
30.0%
Historical and Projected Changeges in Collier County Taxable Values
FY 2005 -FY 2025
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• General Fund support of EMS Operations established at $23,222,000 – up 8.7% from
last year reflecting staffing of new facilities planned for opening.
• Full support for Transportation Operations from the General Fund (001) exclusively in
the amount of $23,156,400
• Continued corporate IT capital funding.
• Cash and carry deposit of an additional $2 million bringing the total to $6.7 million as
the process of evaluating a new accounting system continues.
• Building maintenance funding for Sheriff Facilities totaling $1,000,000 plus a
$1,000,000 to upgrade AFIS (Automated Fingerprint Identification System).
• Mandates to be absorbed, if possible, within operating budgets, including
Constitutional Officers.
Significant Revenue Assumptions
• FY 2022 ad valorem tax revenue forecast is 96% of actual taxes levied. FY 2022 forecast
totals $359,525,900 – a reduction of $13,874,100 from the adopted budget. Collections
are within the 5% statutorily budgeted revenue reserve.
• A millage neutral position for FY 2023 produces a levy of $386,187,800.
• Sales tax revenue forecast for FY 2022 is projected conservatively at $48 million, an
increase of $7 million from the adopted budget. FY 2023 budgeted revenue is planned at
$48,000,000. Conservative revenue estimates are essential to achieving the required
beginning cash balance position.
• State Revenue Sharing forecast for FY 2022 is projected conservatively at $12 million.
The FY 2023 budget is projected conservatively at $12,000,000 which is an increase of $1
million over the adopted 2022 budget.
• Property taxes, sales taxes and revenue sharing deposited in the General Fund represent
92% of all recurring operating revenue which excludes carry-forward (fund balance).
• Constitutional Officer turn-back is a conservative budget estimate and for FY 2023
$6,500,000 is planned. Turnback to the General Fund at year ending 2021 totaled
$38,285,100, which included $31 million in CARES funding for the Sheriff, freeing up
General Fund dollars.
• Measures to maintain annual beginning cash balance at between $120 million and $130
million is necessary and includes continued growth in budgeted reserves coupled with any
combination of revenue receipts over budget and expense side budget management.
• Interest income for FY 2023 is conservatively planned at $650,000.
EMS Fund
EMS Operations Fund (490) is another fund that impacts the General Fund. Typically, this ad
valorem support in recent years accounted for 50% to 55% of total EMS operating revenues. The
percentage varies given the instability in fee revenue collections and any Board policy directives.
The General Fund subsidy planned for FY 2023 is up $1,852,500 reflecting an additional seven
(7) FTEs required to staff the new Golden Gate facility plus utilities. Historical and projected
General Fund support of EMS operations by fiscal year are as follows: (also added $700k in FY24
and FY25 for the other 2 new stations – Old US 41 and Heritage Bay).
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Use of General Fund dollars to support this life/safety function has and continues to be a priority.
Road Construction Program
Board approved budgets have recently supplemented funding for the transportation network with
general governmental dollars transferred from the General Fund to Transportation Capital Fund
(310). This transfer is sized annually based upon the anticipated growth in taxable value and the
recurring need to fund other strategic capital commitments. Over the past four (4) fiscal years the
actual transfer has averaged $8.9 million annually. With taxable values projected to increase for
FY 2023, the General Fund contribution to road construction and maintenance is planned to total
$9.1 million. This transfer is subject to change based upon budget year execution patterns.
As future budgets are planned, and scarce resources allocated, infrastructure maintenance and non-
growth-related improvements will certainly require a dedicated commitment of general revenue to
protect this investment. Capital obligations necessitated by state or federal agreement, like JPA’s
and DCA’s will be funded.
FY 2024
A millage neutral operating budget in FY 2024 with an increase of 2% in taxable value can
continue to allow for priority funding of public safety capital initiatives and general governmental
capital programming referenced in this document with proper budget management. This of course
is in addition to the many new initiatives and program enhancements, Board directed or otherwise
required to support an expanding service base, all of which compete for limited general
governmental resources.
$10.9
$9.2
$11.0
$13.3$12.0
$10.7$11.3$12.8$11.3$11.6
$13.3$13.8$15.0
$17.6$18.0$18.0$18.0
$21.4
$23.2
$24.7
$26.3
$0
$5
$10
$15
$20
$25
$30
MillionsGeneral Fund Support of EMS
(FY 2005 -FY 2025)
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In addition to annual inflationary cost increases, the following items were included in the FY 2024
budget analysis:
• Maintain general governmental capital projects recurring funding.
• Maintain General Fund support of EMS.
• Contingency reserves are maintained at policy.
• Maintain General Fund road subsidy.
• Maintain General Fund support for park system maintenance and replacement
• Maintain General Fund support for Transportation Operations expenses.
• Continue annual contribution to the long-term asset maintenance reserve.
In summary, the FY 2024 analysis signals caution especially when critical variables like taxable
value, market conditions and general revenues are difficult to predict. Pursuing a millage neutral
operating budget in FY 2024 without proper budgeted beginning fund balance would likely result
in a $29.4 million budget planning deficit as depicted in the trend analysis below. Of course,
regular annual budget management to eliminate any actual equity reduction would occur in real
time.
FY 2025
A millage neutral operating budget in FY 2025 coupled with a projected 2% taxable value increase
can allow for continued funding of asset maintenance and replacement while funding those
programs and services enjoyed by an expanding population base. Once again, management of the
budget will be important to achieve appropriate beginning fund balance.
The following items were included in the FY 2025 budget analysis:
• Maintain general governmental capital projects recurring funding.
• Maintain General Fund support of EMS.
• Contingency reserves are maintained at policy.
• Maintain General Fund road subsidy.
• Maintain General Fund support for park system maintenance and replacement
• Maintain General Fund support for Transportation Operations expenses.
• Continue annual contribution to the long-term asset maintenance reserve.
The General Fund Trend Analysis model shown below is intended to offer a picture of very
conservative revenue projections against operating and capital expenses which will likely be faced
in the out years. Of course, financial staff manages the budget in real time and will mitigate
unplanned equity reductions. But imagine a scenario where major revenue sources like property
taxes or state shared revenues were cut or reduced. The obvious impact would be subsequent
expense reductions possibly coupled with new adopted revenue sources and thus the need for
budget flexibility.
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General Fund Trend Analysis
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Unincorporated Area General Fund (111)
Unincorporated Area General Fund (111) Millage History and Projected Millage Rates
As a point of reference, the following graph plots the historical Unincorporated Area General Fund
(111) millage rate, as well as the policy proposed millage rate for FY 2023 through FY 2025,
which includes the proposed marginal millage rate increase to continue the landscape median
capital program.
Results of Unincorporated Area General Fund Analysis
For FY 2022, the Board of County Commissioners maintained the Unincorporated Area General
Fund millage rate at $.8069 and earmarked the marginal increase above the operating millage rate
of $.7161 or $.0908 toward recurring dollars for maintenance of the median landscape investment.
Due to escalating costs, constructing new landscape medians deferred during the recession ceased
in FY 2020 and the program is transitioning to maintaining the landscape assets constructed.
The table below depicts the forecast marginal dollar increase which will be devoted to general
operations and general government capital as well as that component allocated toward continuing
the median landscape program. Incremental ad valorem dollars obtained through tax base increases
under the current $.7161 operating millage rate will fund recurring operations and provide capital
transfer dollars toward maintaining the road network, stormwater system, and community parks.
The marginal rate increase to $.8069 or $.0908 will be used exclusively to fund median landscape
maintenance going forward. The Board should also note the magnitude of our future maintenance
and asset replacement responsibility and dedicate resources gained through any tax base increase
assuming a millage neutral tax rate toward this purpose.
0.8069 0.8069 0.8069
0.6912 0.6912
0.7161
0.8069 0.8069 0.8069 0.8069
0.6000
0.6500
0.7000
0.7500
0.8000
0.8500
MillageUnincorporated MSTD General Fund (111) Millage History and
Recommended Millage Neutral Tax Rates
(FY 2005 to FY 2025)
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Unincorporated
Area
General Fund
FY 21 Adopted and
Recommended future
Tax Rates
Additional Budgeted
Ad Valorem Revenue Projections Each
Year – Operations and General Capital
Additional Budgeted
Ad Valorem Revenue Projections Each
Year – Median Landscape Program
FY 22 0.8069
FY 23 0.8069 $1,622,400 @ 3.5% TV Increase $205,700 @ 3.5% TV Increase
FY 24 0.8069 $ 937,300 @ 2.0% TV Increase $118,800 @ 2.0% TV Increase
FY 25 0.8069 $ 956,000 @ 2.0% TV Increase $121,200 @ 2.0% TV Increase
FY 26 0.8069
For Collier County to continue providing high quality best value services; continue to address
infrastructure maintenance; replace equipment and vehicles; maintain its reserve and cash
positions pursuant to policy and representative of an investment quality credit rated organization,
it is essential to capture those additional ad valorem dollars generated by increasing taxable values
as shown above. Failure to do so will jeopardize service levels and make it very difficult to
maintain the wonderful infrastructure investment which this community enjoys. Obviously, a
rolled back position in the Unincorporated Area General Fund is not a sustainable model going
forward knowing the level of expanded funding commitment required to operate and maintain the
County’s current and future capital infrastructure investment enjoyed by our Unincorporated Area
residents and visitors, including maintaining the existing landscape median assets. Additionally,
levying the rolled back rate when taxable values drop means the rolled back rate will increase
above millage neutral and of course the temptation will be to revert to the millage neutral rate
levied in the prior year which will raise even less property tax revenue.
FY 2023
The FY 2023 budget projection is based upon a 3.5% tax base increase. Property taxes and the
state shared communications services tax represent about 94% of the budgeted operating revenue
(less transfers) within the Unincorporated Area General Fund (111). Once again, changes to
distribution and structure of the communication services tax could be discussed as part of any state
legislative budget proposal. Also, there is the assumption that no legislation will be passed further
eroding a local government’s ability to set and raise ad valorem taxes or curtail other local revenue
sources.
Capital transfers from the Unincorporated Area General Fund have grown substantially since FY
2014 and for FY 2023 $10.2 million is programmed. These transfer dollars are programmed for
Park improvements, Pelican Bay-Clam Pass, Transportation system enhancements, and
Stormwater infrastructure. Sustaining these capital appropriations and maintaining necessary
transportation, landscaping maintenance, park, code, planning, and general operations in this fund
requires at the very least a millage neutral tax position along with continued state shared
communication services tax revenue.
This model is not sustainable under a rolled back millage rate and/or loss of the communication
services tax without mid – year budget reductions or the introduction of replacement revenue
sources like a franchise fee. Any required mid-year cuts will likely affect transportation operations,
park and recreation programs and other non-public safety services.
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FY 2024
If taxable values increase by 2.0% in FY 2024, a millage neutral operating budget coupled with a
reduction in beginning fund balance could result in a potential budget planning deficit of $3.1
million as depicted within the preceding trend analysis. This analysis assumes a state
communication services tax reduction and substantial expense side increases to support landscape
median maintenance and capital transfers. The model presents conservative revenue projections
and aggressive expense projections in the maintenance and capital areas which results in a
continued erosion of the funds cash position. The model is certainly not sustainable and real-time
budget management would always ensure that any equity erosion beyond that planned would be
curtailed.
FY 2025
Continuation of millage neutral operating budget into FY 2025 under a 2.0% increase in taxable
value would generate a modest increase in ad valorem revenue. This increase is certainly not
enough to compensate for the loss in fund equity and planned capital asset maintenance depicted
in the model. Increased funding for median landscape maintenance is anticipated. For planning
purposes and assuming continued decline in beginning budgeted fund balance, a deficit of $3.8
million is depicted. Absent real-time budget management the model depicts a total fund equity
loss from FY 2023 through FY 2025 totaling $11.5 million.
The Unincorporated Area General Fund Trend Analysis model shown below is intended to offer a
picture of very conservative revenue projections against operating and capital expenses which will
likely be faced in the out years. Of course, financial staff manages the budget in real time and will
mitigate unplanned equity reductions. But imagine a scenario where major revenue sources like
property taxes or communication services tax revenues were cut or reduced. The obvious impact
would be subsequent expense reductions possibly coupled with new adopted revenue sources and
thus the need for budget flexibility.
11.C.a
Packet Pg. 129 Attachment: Fiscal Year 2023 Recommended Budget Policies (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Policy Document Page 59
Unincorporated Area General Fund Trend Analysis
11.C.a
Packet Pg. 130 Attachment: Fiscal Year 2023 Recommended Budget Policies (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Collier County
FY 2023
BCC Budget Policy
Fe bruar y 22,2022
1
11.C.b
Packet Pg. 131 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
FY 2023 Budget Policy Highlights
1.Ke y Annual Policies for Consideration and
Board Direction (Policy Document Pages 3-45)
2.Continuing Policies to be Endorsed by
the Board (Policy Document Pages 46-48)
3.Three (3) Ye ar General Fund and
Unincorporated Area General Fund
Analysis (Policy Document Pages 49-59)
2
11.C.b
Packet Pg. 132 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Suggested Board Budget Guidance Action
After due consideration it is recommended that;
The Board approve all recommended Budget
Po licies with any changes dealt with on an
exception basis.
3
11.C.b
Packet Pg. 133 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Millage Rate Policy
—Ta xable Value! Budget Planning Around a 3.5% TV Increase
—General Fund Millage Neutral Rate of $3.5645 per $1,000 of Ta xable Value; Why?
ü Property taxes comprise on average 65% to 70% of general governmental revenues
ü Relying on the rolled back rate as a measure of tax relief can be problematic when the
economy softens and TV increases slow or decrease;and consistency in marginal revenue is
diminished
ü FY 2023 sample funding initiatives include continued development of the Golden Gate Golf
Course including construction contribution;preliminary land use planning on the Hussey and
Camp Keais propertied;satisfy economic development agreement initiatives like “Great
Wo lf ”;hurricane hardening and related grant matches;strategic main campus and satellite
facility relocations and improvements;social ser vice and workforce housing gap funding;any
state shortfall on Mile Marker 63 funding
ü Grow reser ves to ensure sufficient year end cash and provide a buffer against unexpected
expenses or Board policy shifts
ü Ensure that dollars are available to cash flow any natural disaster in FY 2023
ü Continue investment in public safety operations and infrastructure
ü Continued investment in capital infrastructure including strategic financing for the
Government Operations Business Park;and gas tax leveraged transportation network
improvements;and Sheriff facility improvements
ü Operate and maintain new capital facilities constructed like staffing new EMS facilities and the
Sheriff ’s Evidence Facility
4
11.C.b
Packet Pg. 134 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Millage Rate Policy
Continue Unincorporated Area General Fund (111) Millage Neutral
Rate at $0.8069 per $1,000 of Ta xable Value
ü Allocate $0.0908 (amount increased by) to maintain
constructed median landscaping
ü Capital transfer from the Unincorporated Area GF (111) to
storm-water maintenance and capital programming for
projects benefitting the unincorporated area
ü Maintain commitment to community parks;code enforcement;
zoning and land use;natural resources;and road maintenance;
ü Continue capital commitment to community parks;and the
transpor tation network;
Why? Maintain Budget Flexibility;
Public Health,Safety and We lfare Program
Inve stment;Continuing Infrastructure
Inve stment;Human Capital Inve stment and;
Reser ve s
5
11.C.b
Packet Pg. 135 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Millage Rate Policy -MSTU’s
MSTU’s –Assuming Increasing Taxable Value
•With Advisor y Board Oversight –Ta x Neutral
(Rolled Back Rate –same revenue as last year) or
other rate upon Advisor y Board recommendation
and BCC approval
•No Advisor y Board –Rolled Back Rate or lowe r
6
11.C.b
Packet Pg. 136 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Unincorporated Area Proper ty Tax Impact
(Homestead Proper ty)
7
FY 22
Parc el
Ta xable
Va lue
Example
FY 23
Ta x Base
Esc. P roj.
(Cap 3%)
FY 23
Parc el
Ta xable
Va lue
Example
General
Fund
Ta x Rate
Unincorp.
Area GF
Ta x Rate
FY 22
County GF
and
Unincorp.
GF Tax
Example
FY 23
County GF
and
Unincorp.
GF Tax
Example
Difference
Between
FY22 &
FY23
100,000 1.030 103,000 3.5645 0.8069 437.14 450.25 13.11
125,000 1.030 128,800 3.5645 0.8069 546.43 563.04 16.61
175,000 1.030 180,300 3.5645 0.8069 765.00 788.16 23.17
225,000 1.030 231,800 3.5645 0.8069 983.57 1,013.29 29.73
250,000 1.030 257,500 3.5645 0.8069 1,092.85 1,125.64 32.79
275,000 1.030 283,300 3.5645 0.8069 1,202.14 1,238.42 36.28
300,000 1.030 309,000 3.5645 0.8069 1,311.42 1,350.76 39.34
325,000 1.030 334,800 3.5645 0.8069 1,420.71 1,463.54 42.84
500,000 1.030 515,000 3.5645 0.8069 2,185.70 2,251.27 65.57
600,000 1.030 618,000 3.5645 0.8069 2,622.84 2,701.53 78.69
287,500 1.030 296,150 3.5645 0.8069 1,256.78 1,294.59 37.81AVG
11.C.b
Packet Pg. 137 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Unincorporated Area Proper ty Tax Impact
(Non-Homestead Proper ty)
8
FY 22
Pa rcel
Ta xable
Va lue
Example
FY 23
Ta x Base
Esc. P roj.
(Cap 10%)
FY 23
Parc el
Ta xable
Va lue
Example
General
Fund
Ta x Rate
Unincorp.
Area GF
Ta x Rate
FY 22
County GF
and
Unincorp.
GF Tax
Example
FY 23
County GF
and
Unincorp.
GF Tax
Example
Difference
Between
FY22 &
FY23
100,000 1.0700 107,000 3.5645 0.8069 437.14 467.74 30.60
125,000 1.0700 133,800 3.5645 0.8069 546.43 584.89 38.47
175,000 1.0700 187,300 3.5645 0.8069 765.00 818.76 53.77
225,000 1.0700 240,800 3.5645 0.8069 983.57 1,052.63 69.07
250,000 1.0700 267,500 3.5645 0.8069 1,092.85 1,169.35 76.50
275,000 1.0700 294,300 3.5645 0.8069 1,202.14 1,286.50 84.37
300,000 1.0700 321,000 3.5645 0.8069 1,311.42 1,403.22 91.80
325,000 1.0700 347,800 3.5645 0.8069 1,420.71 1,520.37 99.67
500,000 1.0700 535,000 3.5645 0.8069 2,185.70 2,338.70 153.00
600,000 1.0700 642,000 3.5645 0.8069 2,622.84 2,806.44 183.60
287,500 1.070 307,650 3.5645 0.8069 1,256.78 1,344.86 88.08AVG
11.C.b
Packet Pg. 138 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Sample of FY 2023 General Gove rnmental New or Recurring
Funding Initiatives/Requirements
General Government
Funding
Golden Gate Golf Course Bank Loan (FY 2023 Debt Service)$ 2,919,000
Golden Gate Golf Course Construction 7,000,000
Great Wolf Incentive –total $9M through 2026 based upon milestones 2,000,000
Big Corkscrew Regional Park (Phase 1A & 1B) Recurring Operations &
Maintenance
2,500,000
Paradise Coast Sports Complex 2,000,000
Sheriff Forensic & Evidence Facility 5,000,000
Jail / Sheriff Facility Repairs & Finger-Print ID system replacement 2,000,000
General Building,Roofs,and HVAC Repairs 6,000,000
Major Projects &Roof Replacement 7,000,000
General Government Business Park (GOBP) –site development 2,000,000
Information Tech Hardening & Accounting Mgt Software Upgrades 4,118,400
Future Long-Te rm Asset Maintenance Reser ve (Total thru FY 2022 -$17m)15,000,000
Medical Examiner Building Expansion (Total thru FY 2022 -$2m)500,000
Operating New Public Safety (EMS) Capital Facilities 700,000
Librar y Replacement Books 900,000
Museum Capital 207,000
To tal $
9
11.C.b
Packet Pg. 139 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Sample of Cer tain Ongoing & Planned Capital Initiatives
Not Funded from the Local Option Infrastructure Sales Ta x
Major Capital Initiatives Under
Consideration
Est.Cost Funding Source Approx .
Timing
Paradise Coast Sports Complex –Phase 2; Shade Pavilion,
Stormwater Lakes, 5 Baseball Fields, City Gate Blvd North
Extension
$33 million TDT advance, Road Impact Fees -General
Governmental
Approved & Ongoing
Paradise Sports Complex –Phase 3 -11 ballfields
Phase 4 -Fieldhouse
$25 million
$30 million
To be Determined
Park’s –Aquatic’s Pump and Infrastructure Replacement $20 million Debt Service ($735,200) -General
Governmental
Approved & Ongoing
Big Corkscrew Island Park –Phase 2 (athletic complex,
baseball fields and other amenities)
$50 million Regional Park Impact Fees Award Oct-Nov 2022
Preliminary land use planning on the Hussy and Camp Keais
Property
$1.3 million General Governmental FY 2022-FY 2023
Randall Curve Improvements $7 million General Governmental (Portion not
covered by local option infrastructure sales
tax)
FY 2022
CIE Transportation System Assets deemed “poor” in the
inventory plus capacity improvements not funded by the
local option Infrastructure Sales Tax like Collier Blvd (Green
to Golden Gate canal; Goodlette Rd (Vanderbilt to
Immokalee); Wilson (Golden Gate to Immokalee)
$100 million Future Debt Service –Gas Taxes FY 2022-FY 2024
Storm-Water Capital Improvements; Palm River, Naples
Park, Goodlette Frank, Gordon River, etc…
$60 million Debt Service ($2,206,000) -General
Governmental
Approved & Ongoing
Government Operations Business Park (GOBP)$79 million General Governmental (Portion not
covered by local option infrastructure sales
tax or Water/Sewer User Fees)
FY 2022–FY 2026
Public Utilities Northeast regional Water Reclamation
Facility (4 MGD)
$100 million Future Debt Service –Sewer Impact Fees FY 2022–FY 2027
10
11.C.b
Packet Pg. 140 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
FY 2022 Adopted Gross Budget
by Fund Type
To tal Budget $2,447,796,500
11
General Fund,
542,298,600, 22%
General Fund -
Constitutional
Officers, 268,621,400,
11%
Special Revenue Funds,
398,833,300, 16%
General Gov't Debt Ser vice
Funds, 46,921,900, 2%General Gov't Capital Projects
Funds, 515,565,400, 21%
Enterprise Funds,
528,165,700, 22%
Internal Ser vice Funds,
140,145,400, 6%
Permanent (Trust)
Funds, 7,244,800, 0%
Unincorporated Gen Fd,
Conservation Collier, TDC,
Planning & Development Services,
Road & Bridge, MSTU's, Pelican
Bay, Grants
Water / Sewer;EMS, Solid
Waste, Public Transit Services
(This fund type includes
Operations, W/S Debt, and
Capital)
Executive Offices, County Attorney,
Economic Devel., Domestic Animal
Serv., Library, Parks, Health Dept,
Transit, Facilities Mgt,, Courts,
Purchasing, Human Resources,
Emergency Mgt,, Medical Examiner
11.C.b
Packet Pg. 141 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
General Fund Expense Slide
by Categor y
12
11.C.b
Packet Pg. 142 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
General Fund Cash Planning and
Obser vations
—Ye ar ending cash balance influences budget planning.
—FY 2022 and FY 2023 budget management designed to increase
year end cash.
—First two months cash flow requirements in new FY (October
and November) totals between $80 -$90 million.
—Reser ves growing to protect year ending cash;hedge against
unanticipated expenses and/or policy shifts;safety net in the
eve nt of natural disasters;signal of financial strength;and
impor tant component of budget flexibility strateg y.
13
11.C.b
Packet Pg. 143 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Agency Allocations
—Premise is that all agencies will work together
and cooperatively should the need arise for
budget reductions due to taxable values below
the planning threshold;re ductions in proper ty
tax reve nue;any state tax reform legislation;
re ductions in state shared reve nue;or unfunded
mandates.
—Conve rsely –increases in reve nue above the
planning threshold will also be allocated based
upon Board direction.
14
11.C.b
Packet Pg. 144 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Reve nu e Centric
—Enterprise Funds;Internal Ser vice Funds;Special
Reve nue Funds and other Operational Funds
which are suppor ted by fees with no reliance
upon ad valorem reve nue will be allowed to
establish budgets and conduct operations around
reve nue centric guidelines dictated by cash on
hand and anticipated receipts.
—Within the General Fund and Unincorporated
Area General Fund,net cost to these funds offset
by fee reve nue will be monitored and negative fee
variances will be addressed through expense cuts
and not subsidized by ad valorem reve nue .
15
11.C.b
Packet Pg. 145 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Agency Positions
—Expanded position requests limited to Board
approved capital facility openings and/or Board
directed ser vice leve l adjustments.
—Expanded requests will either be submitted to
the Board and vetted separately mid-ye ar on an
exception basis for capital facility openings or
presented as par t of the FY 2023 budget
wo rkshop in June .
16
11.C.b
Packet Pg. 146 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Compensation
—On Januar y 25,2022,BCC approved Phase 1 of a comprehensive overhaul of the County’s
classification and compensation plan intended to reward existing employees with an average
8.5% salar y increase and further fixing the internal pay plan structure to become more more
competitive in the attraction and retention of skilled talent.
—The almost $7.2 million phase one investment in our dedicated and loyal County Manager
Agency workforce is considered long overdue and represents a planned initiative to earmark
resources keeping Collier County competitive in today’s ever changing employment market
—FY 2023 Recommended compensation adjustment and pay plan maintenance allocation for the
CM Agency is valued at $10 million which is $6.75 million more than last years funding levels.
—Compensation Administration Philosophy:
ü Facilitate retention and hiring of knowledgeable,skilled and experienced staff
ü Support professional development and career progression
ü Establish equitability in position pay ranges and to rates paid incumbents in those positions.
ü Reward individual and team achievements
17
11.C.b
Packet Pg. 147 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Health Care
—Endeavo r to maintain for the County Manager Agency an average
cost distribution between the Board and Employees at 80%
(Employer) 20% Employe e.
—For FY 2022,the County experienced no (0%) health insurance rate
increase . Due to continued exceptional plan performance and plan
re ser ve s which far exceed statutor y minimums, no (0%) health
insurance rate increase is proposed for FY 2023
re presenting the eleve nth (11th) year of no plan increase .
—Due to regular ongoing health maintenance and awareness initiatives,
risk factors for covered employe es and family members continue to
drop.
—More than 90% par ticipation in the preventive maintenance and
qualifier process.
18
11.C.b
Packet Pg. 148 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Retirement Rates
—Adherence to OMB rates published within the
OMB budget instructions.
—Rates Established based upon State Guidance .
19
11.C.b
Packet Pg. 149 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Storm-Wa ter Funding
—FY 2020 general governmental storm-water operating and capital funding
totaled $13.5 million.
•FY2021,budgeted $15.5 million
•FY2022,budgeted $15.5 million ($7.5 Operating,$5.8 Capital,$2.2 Debt)
—FY 2023 planning model under a millage neutral tax rate allocates a total
of $15.8 million in general governmental dollars with $5.9 million toward
cash and carry infrastructure replacement;$7.7 million for industr y
standard maintenance and operations;and $2.2million for debt ser vice
—Commitment to re curring general governmental storm-water
maintenance funding consistent with industr y standards with the final
amount depending upon receipt of actual taxable value numbers;overall
budget submissions and Board direction.
—Legally available non-ad-valorem revenue will be used to fund any debt
ser vice which is approximately $2.2 (FY22-FY30) to $4.1 (FY31-FY46)million
annually.
20
11.C.b
Packet Pg. 150 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Uses of Gas Ta xe s
—Continue Board policy where pledged gas taxes pay debt ser vice on the gas tax revenue bonds
which have final maturities in June 2023 and 2025 respectively;remaining gas tax funds
programmed to support construction and transportation network improvements.
—Tr ansfer dollars totaling $9.1 million planned in FY 2023 from the General Fund to Tr ansportation
Capital Fund (310) will provide funding support for maintenance of the roadway network and
other transportation related expenses.
—Tr ansfer dollars from the Unincorporated Area GF planned at $3.0 million in FY 2023 to
Tr ansportation Capital Fund (310) augmented by a $2.6 million direct budget appropriation in this
fund for road maintenance.
—Gas Taxes collected from all sources totaled $22.9 million in FY 2021.Forecast FY 2022 revenue is
estimated at $22.9 million and the planning FY 2023 revenue will be in the $23 million range.
—$1 million in gas taxes freed up annually for transportation network improvements beginning in FY
2015 due to restructuring of the gas tax debt.
—One financing strategy is using available constitutional gas tax bond coverage above adds bonds
test of 1.35x to issue wrapped debt of upto $25 million covering necessar y and planned
transportation system and road improvements.
—Parallel strategy is to consider early extension of local option gas taxes before December 2025
capitalizing on low interest rates,greater coverage ratios,and an extended repayment horizon to
finance strategic transportation network road assets deemed poor in the inventor y as well as
certain capacity improvements.
21
11.C.b
Packet Pg. 151 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
General Fund General Capital/Debt
Ser vice and Debt Management
—Tr ansfer dollars for county-wide capital purposes;
paying non-growth reve nue bond debt;provide
impact fee trust fund loans (FY 23 -$1.9M) to
cover growth related debt obligations and to
fund much needed general governmental priority
re placement capital projects within the parks
system and general governmental facilities.
22
11.C.b
Packet Pg. 152 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
General Gove rnmental,Enterprise
Fund and Other Reser ve Po licies
—GF –floor ; 8 % of operating expenses or $35.3 million –Ceiling;16% of operating expenses or
$70.7 million;current planning reserve for FY 2023 is $66.3 million an increase of $1.4 million.
—Other Gen.Govt.Funds –Generally 2.5% of operating expenses with a ceiling of no more than
one month of expenses.Ceiling for the Unincorporated Area GF is $5.45 million;current
planning reserve for FY 2023 is $3.19 million.
—Other general governmental funds that receive transfer revenue from the GF will have reserves
sized to cover the first month of operations or until the first GF transfer is scheduled.
—Reserve policy for Pelican Bay Ser vices Division (PBSD) operating fund (109) set between 15-
30 percent of operating expenses given the districts coastal nature,level of infrastructure
investment,natural assets and commitment to maintenance and resource protection.
—CCWSD user fee reser ves established minimally between 5% and 15% of revenues with
working capital resources set between 45 days and 90 days.Within the family of CCWSD family
of user fee operating and capital funds reserves will range between $22.5 and $45.0 million
while working capital resources will total roughly $29.0 million or 58 days of reserves.
—Establish over a three to five year period,a solid waste restricted reserve of ten (10) percent of
the FY 2022 budgeted charges or $5.7 million.
—Ta rgeted reserves within the GMD building permit fund (113) and planning fund (131) set at 18
months and 24 months of total budget appropriations respectively.
23
11.C.b
Packet Pg. 153 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Financing New and Replacement Capital
Infrastructure
—Finance Committee is engaged and continually reviewing all appropriate
capital financing and existing capital debt restructuring options.
—FY 2023 budget planning does not program issuance of debt as par t of the
adopted budget.
—Any new debt issue recommendation will include a consolidated financing
plan based upon the number of current and future capital projects and
initiatives to be financed,the timing of project implementation,expected
payout schedule, t he appropriate type of debt and existing market
conditions.
—Issuance of debt in the areas financed would reduce the cash and carr y
component by the amount of debt ser vice .
—Cost to finance always a concern,but County’s credit rating will reduce the
interest expense.
—Long term debt means that future users of capital facilities and infrastructure
and not just current users will par ticipate in paying for facilities.
24
11.C.b
Packet Pg. 154 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Conser vation Collier Budget Policy
On November 3,2020,the Collier County electors,with a 76.5%
majority,approved re-establishing a not to exceed .25 mil ad
valorem levy for ten (10)years to fund Conservation Collier.
•FY23 budget to include a County-wide Conservation Collier tax levy of .2500
mil that will generate approximately $27,085,700.
•In FY22, Repaid approximately $3,700,000 to the Conservation Collier
Management Trust Fund for monies advanced to acquire properties.
•Tw enty-five percent (25%) of tax receipts will be deposited into the
Conservation Collier Management Trust Fund.
•The balance of tax receipts will be used to acquire environmentally sensitive
lands.
•Current land management reserves ($34.7M) and other program reserves like
Pepper Ranch ($5.7M).
•Projected burn rate over 50 years using modest revenue increases, inflation
and annual operating cost increases is $13.3 million on existing reserves
leaving a reserve balance of $27.1 million.
25
11.C.b
Packet Pg. 155 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Yo uth Relations Officer Funding
—County Commission through the Sheriff's Agency has
funded a program providing coverage in many schools for
ye ars.
—SB 7026 passed in 2018
—Legal responsibility to comply with SB 7026,including
funding is the responsibility of the Collier County School
District
—Current Youth Relations Officer funding is consistent with
budget needs expressed by the CCSO.
—The School District returns to the County net dollars
re ceived from the State ( after deduction for district
expenses) which totaled $1.8 million in FY 2021.
26
11.C.b
Packet Pg. 156 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
Schedule
—Resolution requiring FY 2023 budget submittals by the
Sheriff;Super visor of Elections and Clerk of Cour ts on May
1st.
—FY 2023 June Budget Wo rkshop Dates –Thursday June 16th
and if necessar y,Friday June 17th
—Adopt Tentative Maximum FY 2023 Millage Rates on Tu esday
Ju ly 12,2022
—Board Receives Tentative FY 2023 Budget Document on
Friday July 15,2022
—First FY 2023 Public Budget Hearing on Thursday
September 8th with the Final FY 2023 Budget Hearing on
Thursday September 22nd
27
11.C.b
Packet Pg. 157 Attachment: FY23 Budget Policy (21310 : Recommendation to adopt the FY 2023 Budget Policy)
RESOLUTION NO.2022-
A R-ESOLUTION PURSUANT TO SECTION 129.03, FLORIDA STATUTES,
REQUIRING THE FY 23 TENTATIVE BUDGETS OF THE SHERIFF, THE
SUPERVISOR OF ELECTIONS AND TITE CLERK TO BE SUBMITTED TO THE
BOARD OF COUNTY COMMISSIONERS BY MAY 1,2022.
WHEREAS, Chapter 129, Florida Statutes, addressing the County annual budget,
provides specifically in Section 129.03, Florida Statutes, that the Board of County
Commissioners may, by resolution, require the tentative budgets ofthe Sheriff, the Supewisor of
Elections and the Clerk to be submiued by May 1 of each year.
NOW,THEREFORE,BE IT RESOLVED BY THE BOARD OF COUNTY
COMMISSIONERS OF COLLIER COUNTY, FLORIDA, pwsuant to Section 129.03, Florida
Statutes, that the Sheriff, the Supervisor ofElections, and the Clerk of the County of Collier,
Florida, are hereby required to submit their respective tentative budgets for the FY 23 fiscal year
to the Board of County Commissioners by May 1,2022.
This Resolution shall be effective on its adoption.
This Resolution adopted this 22nd day of February 2022, after motion, second and
majority vote.
ATTEST:
CRYSTAL K. KINZEL. Clerk
BOARD OF COLINTY COMMISSIONERS
COLLIER COLTNTY, FLORIDA
By
William L. McDaniel, Jr., Chairman
Approved
legality:
Jeffrey A.
t and
.-r+{
Countv
il
11.C.c
Packet Pg. 158 Attachment: Resolution FY 2023 Budget Policy and Constitutionals-signed (21310 : Recommendation to adopt the FY 2023 Budget Policy)